OFFICE OF FEDERAL HOUSING ENTERPRISE OVERSIGHT 

1700 G STREET NW WASHINGTON DC 20552 (202) 414-3800

 

 

 June 15, 2003 

The Honorable Richard Shelby The Honorable Michael G. Oxley 

Chairman Chairman 

Committee on Banking, Housing, & Urban Affairs Committee on Financial Services 

United States Senate United States House of Representatives 

Washington, D.C. 20510 Washington, D.C. 20515 

Dear Chairmen: 

I am pleased to transmit the 2003 Report to Congress from the Office of Federal Housing Enterprise 

Oversight (OFHEO). This report has been prepared to meet the statutory requirements in section 1319B 

of the Federal Housing Enterprises Financial Safety and Soundness Act of 1992 (Title XIII of P.L. 102-

550). The views in this report are those of the Director and do not necessarily represent those of the 

President or the Secretary of Housing and Urban Development. 

Pursuant to Section 1319B(a)(3) of the Federal Housing Enterprises Financial Safety and Soundness Act 

of 1992, the Director of the Office of Federal Housing Enterprise Oversight (OFHEO) shall include any 

legislative recommendations to enhance the financial safety and soundness of Fannie Mae and Freddie

Mac (the Enterprises) in this annual report to Congress. Accordingly, I am forwarding the following 

recommendations. 

The first recommendation was submitted to the Congress earlier this year through the Administration's

Fiscal Year (FY) 2004 budget request. An identical recommendation was made by the Administration,

and OFHEO, last year. The suggested language would exempt OFHEO from the appropriations process

and permanently fund the agency. Currently, OFHEO's assessments of the Enterprises are subject to the 

annual Congressional appropriations process, whereas other regulators' assessments are exempt. 

Permanent funding would permit OFHEO to adapt more easily to changes in the ever expanding range of 

Enterprise activities and to act quickly should serious problems develop or a financial crisis become more

likely. OFHEO's funding mechanism should be the same as that of the other federal safety and soundness 

regulators. The legislative language which is identical to that recommended by the Administration 

follows: 

Section 1316(a) of the Federal Housing Enterprises Financial Safety and Soundness Act of 1992 (12 U.S.C. 

4516) is amended in the first sentence by striking ", to the extent provided in appropriations Acts." 
OFHEO also recommends that the 1992 Act be amended to provide that the agency may appoint a 

receiver to close and wind up the affairs of an Enterprise that is not viable. OFHEO’s existing authority 

to resolve the situation would be enhanced by this legislative action. Other federal safety and soundness 

regulators already have this explicit authority. Financial markets, the housing sector and creditors all

would benefit from a final, predictable resolution of a non-viable Enterprise. 

Sincerely, 

Armando Falcon, Jr. 

Director 

cc: The Honorable Paul S. Sarbanes, Ranking Member, Senate Committee on Banking, Housing & Urban Affairs 

The Honorable Barney Frank, Ranking Member, House Committee on Financial Services 
 

Message From the Director 

On the occasion of our 10th Anniversary, it is with great 

pride that I report to Congress that the Office of Federal 

Housing Enterprise Oversight has developed into the 

strong, capable and innovative regulator that Congress 

envisioned when it created the Agency only a decade ago. 

OFHEO today is actively and aggressively fulfilling its 

mission of ensuring the safety and soundness of Fannie 

Mae and Freddie Mac (the Enterprises). 

The Enterprises have remained safe and sound through 

another year of exceptional growth in the housing sector

of our economy. In a year when more and more Americans

have become homeowners, the public can take comfort in 

knowing that OFHEO is on the job, doing its part to

ensure the strength and vitality of the nation’s housing 

finance system. 

In 2002, OFHEO achieved several major goals: Our state-of-the-art risk-based capital regulation was 

fully implemented and is now binding; we enhanced the Enterprises’ mortgage-backed securities 

disclosures through a report and regulation; and we initiated a responsible dialogue on the systemic

implications of the Enterprises’ activities through the publication of a comprehensive study. 

Also, consistent with the spirit of OFHEO’s Congressional mandate, we have strived for transparency 

in our activities. As required by law, we are the only regulatory agency that publishes the results of our

annual examinations (Chapter 4). Additionally, we voluntarily submit the Agency to an independent 

financial audit and publish the results (Chapter 5); we released the computer model for our risk-based

capital stress test; and we continuously release data and research reports, such as the House Price 

Index, for the public’s benefit. OFHEO will continue to promote disclosure of the Agency’s and the 

Enterprises’ activities whenever possible and appropriate. 

OFHEO’s success over the past 10 years could not have been possible without the support of the

current and past Administrations as well as Congress. With their support, the Agency’s budget and 

staff resources have doubled over the past four years. Yet ultimately, our success falls on the shoulders 

of the many talented and dedicated individuals who work here and I am grateful for their hard work. 

I would also like to highlight Chapter Two in this year’s report. This chapter contains an informative 

overview of the development of the secondary mortgage market in the United States. It covers not just 

the Enterprises, but all aspects of the market. 

Finally, this Annual Report marks my last as the Director of OFHEO. I have truly enjoyed serving the 

public and the Congress in this position. Having worked as Counsel for the House Banking 

Committee when Congress created OFHEO, to serving as Director of the Agency, I am pleased to have

been a part of the transformation of OFHEO from a small start-up operation to the fully successful 

regulator that it is today. I am sure that great things await OFHEO in the next decade and beyond.

Sincerely, 

Armando Falcon, Jr. 
TABLE OF CONTENTS

CHAPTER ONE – YEAR IN REVIEW...................................................................................................... 1 

THE HOUSING MARKET CONTINUES TO BE A BRIGHT SPOT IN AN UNCERTAIN 

ECONOMY...................................................................................................................................................1 

THE ENTERPRISES ’ FINANCIAL PERFORMANCE................................................................... 2

EXAMINATION ACTIVITIES............................................................................................................... 2 

CAPITAL REQUIREMENTS ................................................................................................................. 3 

SUPERVISORY ACTIONS ..................................................................................................................... 3 

RULEMAKING.......................................................................................................................................... 3 

Box 1-1 Corporate Governance...............................................................................................................4 

ACTIONS ON EXECUTIVE COMPENSATION.............................................................................. 5 

OFHEO RESEARCH AND PUBLICATIONS .................................................................................... 6 

HOUSE PRICE INDEX MAP ................................................................................................................. 7 

Box 1-2 Financial and Other Disclosures.............................................................................................. 8 

CHAPTER TWO – 

THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET............................... 9 

Milestones in the Development of the U.S. Secondary Market for SF Mortgages...................10 

Single-Family Mortgage Lending in the U.S. Before the Great Depression ............................... 11 

The Federal Government's Creation of FHA and Fannie Mae in the 1930s............................. 11 

Early Trading and Single-Family Mortgages After the Great Depression..................................12 

The Transformation of Fannie Mae and the Creation of Ginnie Mae..........................................12 

Figure 1 - Ginnie Mae - Guaranteed Single-Family MBS Outstanding 1970 - 2002................ 14 

The Creation of Freddie Mac and the Development of the Secondary Market for MBS 

Backed by Conventional Mortgages and Guaranteed by the Enterprises................................. 14

Figure 2 - Single-Family Mortgages Owned or Securitized by Fannie Mae 1971 - 2002........17 

Figure 3 - Single-Family Mortgages Owned or Securitized by Freddie Mac 1971 - 2002 .....17 

Evolution of the Nonagency Secondary Mortgage Market ............................................................18 

The Emergence of the Federal Home Loan Bank System................................................................18 

Figure 4 - Nonagency Mortgage Securities Outstanding 1987 - 2002 .......................................19 

The Securitized Share of Single-Family Residential Mortgage Debt...........................................19 

Figure 5 - Securitized Share of Single-Family Residential Debt Outstanding .........................20

The Proportion of Single-Family Residential Mortgage Debt Outstanding 

Held by GSEs.............................................................................................................................................20 

Figure 6 - Proportion of Single-Family Residential Mortgage Debt Outstanding 

Held By GSEs.............................................................................................................................................21 

CONCLUSION..........................................................................................................................................21 

CHAPTER THREE – CAPITAL REGULATION.................................................................................. 22 

RISK-BASED CAPITAL OVERVIEW................................................................................................22

Box 3-1 - Risk-Based Capital Implementation Achievements......................................................24

MINIMUM CAPITAL STANDARD OVERVIEW .........................................................................25 

CLASSIFICATION PROCESS .............................................................................................................25 

Box 3-2 - RESULTS AND ANALYSIS OF CAPITAL ADEQUACY............................................26 

ONGOING ENHANCEMENTS .......................................................................................................... 27 
TABLE OF CONTENTS

Box 3 - 3 - CAPITAL ADEQUACY ......................................................................................................28 

CHAPTER FOUR – OFHEO’S EXAMINATION PROGRAM AND RESULTS ......................... 29

INTRODUCTION ...................................................................................................................................29 

OFHEO’s Examination Program..........................................................................................................29 

Risk Profiles.............................................................................................................................................. 29 

Examination Strategies...........................................................................................................................29 

Program Areas for Risk-Based Examinations and Categories of Risk and Risk 

Management..............................................................................................................................................30 

Evaluation Criteria, Assessment Factors and Examination Objectives......................................31 

Communicate Examination Findings..................................................................................................31 

Effect Changes and Follow Up.............................................................................................................32 

Fannie Mae Examination Results and Conclusions........................................................................ 33 

Freddie Mac Examination Results and Conclusions......................................................................36 

CHAPTER FIVE – FINANCING OFHEO'S OPERATIONS ............................................................ 39 

 OFHEO's BUDGET..................................................................................................................................39

OFHEO CONTINUES TO RECEIVE UNQUALIFIED AUDIT OPINION IN FY 2002.......40 

AUDIT OF OFHEO................................................................................................................................. 41 

CHAPTER SIX – HISTORICAL DATA TABLES ..................................................................................72 

Table 1. Fannie Mae Mortgage Purchases.........................................................................................74

Table 1a. Fannie Mae Mortgage Purchases Detail, By Loan Type, Part 1, SF ........................... 75 

Table 1a. Fannie Mae Mortgage Purchases Detail, By Loan Type, Part 2, MF ........................ 76 

Table 1b. Fannie Mae Purchases of Mortgage-Related Securities.............................................. 77 

Table 2. Fannie MBS Issuances............................................................................................................ 78 

Table 3. Fannie Mae Earnings.............................................................................................................. 79 

Table 3a. Fannie Mae Earnings............................................................................................................80 

Table 4. Fannie Mae Balance Sheet......................................................................................................81 

Table 4a. Fannie Mae Total MBS Outstanding Detail, Part 1, SF ...............................................82 

Table 4a. Fannie Mae Total MBS Outstanding Detail, Part 2, MF.............................................83 

Table 5. Fannie Mae Retained Mortgage Portfolio Detail ............................................................84 

Table 5a. Fannie Mae Retained Mortgage Portfolio Detail, Part 1a, Whole Loans.................85 

Table 5a. Fannie Mae Retained Mortgage Portfolio Detail, Part 1b, Whole Loans................86 

Table 5a. Fannie Mae Retained Mortgage Portfolio Detail - Part 2a 

Mortgage-Related Securities................................................................................................................. 87 

Table 5a. Fannie Mae Retained Mortgage Portfolio Detail - Part 2b 

Mortgage-Related Securities.................................................................................................................88 

Table 6. Fannie Mae Financial Derivatives.......................................................................................89 

Table 7. Fannie Mae Non-Mortgage Investments...........................................................................90 

Table 8. Fannie Mae Asset-Liability Mix...........................................................................................91 

Table 9. Fannie Mae Mortgage Asset Quality..................................................................................92 

Table 10. Fannie Mae Capital...............................................................................................................93 
TABLE OF CONTENTS

Table 11. Freddie Mac Mortgage Purchases......................................................................................94 

Table 11a. Freddie Mac Mortgage Purchases Detail, By Type of Loan, Part 1, SF....................95 

Table 11a. Freddie Mac Mortgage Purchases Detail, By Type of Loan, Part 2, MF.................96 

Table 11b. Freddie Mac Purchases of Mortgage-Related Securities........................................... 97 

Table 12. Freddie Mac MBS Issuances...............................................................................................98 

Table 13. Freddie Mac Earnings...........................................................................................................99 

Table 13a. Freddie Mac Earnings.......................................................................................................100 

Table 14. Freddie Mac Balance Sheet................................................................................................101 

Table 14a. Freddie Mac Total MBS Outstanding Detail..............................................................102 

Table 15. Freddie Mac Retained Mortgage Portfolio Detail....................................................... 103 

Table 15a. Freddie Mac Retained Mortgage Portfolio Detail, Part 1a, Whole Loans...........104 

Table 15a. Freddie Mac Retained Mortgage Portfolio Detail, Part 1b, Whole Loans...........105 

Table 15a. Freddie Mac Retained Mortgage Portfolio Detail, Part 2a, 

Mortgage-Related Securities...............................................................................................................106 

Table 15a. Freddie Mac Retained Mortgage Portfolio Detail, Part 2b, 

Mortgage-Related Securities............................................................................................................... 107 

Table 16. Freddie Mac Financial Derivatives..................................................................................108 

Table 17. Freddie Mac Non-Mortgage Investments.....................................................................109 

Table 18. Freddie Mac Asset Mix.......................................................................................................110 

Table 19. Freddie Mac Mortgage Asset Quality ..............................................................................111 

Table 20. Freddie Mac Capital............................................................................................................112 

Table 21. Combined Purchases ...........................................................................................................113 

Table 21a. Combined Mortgage Purchases Detail, by Type of Loan, Part 1, SF.....................114 

Table 21a. Combined Mortgage Purchases Detail, by Type of Loan, Part 2, MF...................115 

Table 21b. Combined Purchases of Mortgage-Related Securities ............................................116 

Table 22. Combined MBS Issuances .................................................................................................117 

Table 23. Combined Earnings.............................................................................................................118 

Table 24. Combined Balance Sheet....................................................................................................119 

Table 24a. Combined Total MBS Outstanding Detail.................................................................120 

Table 25. Combined Financial Derivatives......................................................................................121 

Table 26. Combined Non-Mortgage Investments........................................................................122 

Table 27. Combined Capital............................................................................................................... 123 

Table 28. Loan Limits...........................................................................................................................124 

Table 29. Mortgage Interest Rates ................................................................................................... 125 

Table 30. Housing Market Activity ..................................................................................................126 

Table 31. Weighted Repeat Sales House Price Index....................................................................127 
CHAPTER ONE - YEAR IN REVIEW

1

CHAPTER ONE: YEAR IN REVIEW

THE HOUSING MARKET CONTINUES TO BE A BRIGHT SPOT IN AN 

UNCERTAIN ECONOMY

In 2002 the U.S. economy continued to recover from the recession of the previous year, although 

the pace of economic growth was uneven. Economic activity expanded briskly in the first and 

third quarters of 2002, but grew more slowly in the second quarter and again in the fourth. For 

the full year, economic output increased 2.4 percent, a marked improvement over the growth 

rate of 0.3 percent in 2001. The unemployment rate fluctuated during the year and ended 2002 

at 6.0 percent, the highest level since 1994 but only fractionally higher than the year-end 2001 

level of 5.8 percent.

After leaving its target for the Federal funds rate unchanged for most of the year, in November 

the Federal Reserve responded to continuing economic weakness by lowering that target 0.5 

percentage point to 1.25 percent, the lowest level in more than 40 years. Yields on Treasury 

securities trended downward through much of 2002. Mortgage interest rates followed the trend 

of long-term Treasury issues and fell throughout the year, averaging for the full year almost onehalf of a percentage point below the levels of 2001.

As in 2001, the housing market in 2002 was one of the few bright spots in the U.S. economy. 

Stimulated by even lower interest rates, single-family housing starts approached 1.4 million 

units. Likewise, low mortgage rates contributed to strong home sales in 2002. Combined sales 

of new and existing homes totaled 6.5 million units, an increase of 5.5 percent from 2001’s 

record-setting level of 6.2 million units. Driven by the continuing wave of refinancing

stimulated by lower mortgage rates, originations of single-family loans increased 21 percent over 

the previous year, to $2.5 trillion.

Home prices, boosted by strong demand, continued to rise at a strong pace in most of the nation 

in 2002, despite some slowing as the year progressed. As measured by OFHEO’s House Price 

Index, the average U.S. home price increased 7.6 percent from the fourth quarter of 2001 to the 
CHAPTER ONE - YEAR IN REVIEW

2

fourth quarter of 2002. During the previous year, average appreciation was 6.92 percent. 

Housing affordability, as measured by the National Association of Realtors, increased in 2002 

despite rising prices.

THE ENTERPRISES’ FINANCIAL PERFORMANCE

Fannie Mae and Freddie Mac had strong financial results in 2002 as they continued to benefit 

from the strong housing market. Both Enterprises surpassed the records for mortgage purchase 

volumes and securitizations they set in 2001. Assets grew at a more moderate pace in 2002,

however. Each Enterprise increased its mortgage portfolio at a much slower rate, in part 

because strong demand for mortgage assets by commercial banks limited the attractiveness to 

the Enterprises of acquiring such assets. Nonetheless, the combined assets of Fannie Mae and 

Freddie Mac increased by a healthy 13.5 percent to $1.6 trillion, almost double the level five years 

before at the end of 1997. The Enterprises’ combined mortgage portfolios increased by 15 

percent last year to $1.4 trillion.

Despite record-setting portfolio liquidations, Fannie Mae and Freddie Mac each improved its 

net interest margin. That improvement resulted from a combination of a steep yield curve and a 

shortening of prospective mortgage asset lives, which made possible increased use of

inexpensive short-term debt. The higher margins translated into higher income—combined 

core net income (GAAP net income adjusted to better reflect the profitability of primary

operating activities) increased 20 percent in 2002 to more than $10 billion.1 That higher income 

resulted in higher rates of return on equity and assets. 

Credit losses and credit risk indicators remained low for both Enterprises. Combined

Enterprise credit-related losses increased $18 million, or 12 percent, to $166 million, due to 

higher charge-offs. Despite that increase, the Enterprises’ credit loss rates (credit losses as a 

percentage of total mortgage-backed securities outstanding plus the retained mortgage

portfolio) remained relatively unchanged from the prior year. Combined Enterprise estimated 

exposure to sudden 5 percent decline in house prices rose last year from $788 million to $874 

million, but remained less than 2 percent of combined core capital. 

EXAMINATION ACTIVITIES

Comprehensive risk-based examinations are an important tool OFHEO employs to ensure the 

Enterprises operate prudently and remain safe and sound. Continuous on-site examination 

activities combined with ongoing surveillance and monitoring are key aspects of the annual riskbased examinations. The 2002 results and conclusions from Fannie Mae’s and Freddie Mac’s 

annual examinations are provided in Chapter 4.

 

1

 Freddie Mac has announced that it intends to restate certain financial results for 2002 and prior years. 

Restatement of such financial results may affect some of the statements made here.
CHAPTER ONE - YEAR IN REVIEW

3

CAPITAL REQUIREMENTS

OFHEO has two quantifiable capital measurements for the Enterprises. The Enterprises are 

required to meet the higher of the two requirements each quarter. Both Enterprises remained 

adequately capitalized during all quarters of 2002. More detailed information on minimum and 

risk-based capital is included in Chapter 3.

SUPERVISORY ACTIONS

Enforcement Actions. None. 

Prompt Supervisory Response and Corrective Action. 

Fannie Mae. A Prompt Supervisory Response action (12 CFR 1777) was taken in September, 

2002, to address concern regarding Fannie Mae’s substantial duration gap imbalance. The 

concern involved the trend and size of the imbalance between the duration of Fannie Mae’s 

mortgage assets and its liabilities. Fannie Mae was required to submit for OFHEO’s review an 

action plan for correcting the imbalance within an acceptable time frame as well as the steps 

that would be taken to protect against future concerns. OFHEO maintained daily oversight of 

the implementation of the plan and the imbalance was rectified within an acceptable time frame. 

In addition, Fannie Mae demonstrated an ability to maintain an appropriate duration gap over 

the next six months. Accordingly, the Prompt Supervisory Response action was lifted in April, 

2003. 

RULEMAKING

In 2002, OFHEO published three final regulations in furtherance of the agency’s undertaking to 

establish a comprehensive regulatory infrastructure to, among other things, enhance

transparency and ensure the adequacy and enforceability of supervisory standards, including:

Corporate Governance — On June 4, 2002, OFHEO published a final rule that built upon and 

reinforced the agency’s risk-based examination and supervisory program by setting forth

minimum corporate governance standards for the Enterprises. The rule, which became effective 

on August 5, 2002, incorporated recent changes in Federal law and industry standards affecting 

governance of public corporations. The rule addressed management responsibilities,

committees of the board, election of state law and indemnification issues (Box 1-1 on following 

page).
CHAPTER ONE - YEAR IN REVIEW

4

CORPORATE GOVERNANCE (Box 1-1)

Corporate governance involves the balanced relationships between a company, its 

management, board of directors, shareholders, regulators, and other stakeholders. It 

refers both to the structure through which the business objectives and strategies of the 

company are set and to the means and guiding principles for attaining those 

objectives and monitoring performance.

OFHEO has long recognized that good governance practices and procedures are 

essential to the safe and sound operations of the Enterprises. Thus, corporate

governance is a specific category of risk and risk management that is routinely 

examined by OFHEO under its annual risk-based examination program.

In early 2001, OFHEO proposed a broadly articulated corporate governance rule as 

an essential component of its announced effort to implement a comprehensive 

regulatory structure for Fannie Mae and Freddie Mac. The rule, as adopted in June 

2002, builds upon the agency’s risk-based examination program and reiterates certain 

fundamental policies affecting the governance practices and procedures of the 

Enterprises. The governance standards articulated in that rule are substantially 

similar to those required of Federally insured financial intuitions addressing 

transparency, board structure and independence, management accountability and 

internal controls. 

Some months after OFHEO’s initiative in this area began, the markets were racked by 

the exposure of several large corporate scandals widely seen as evidencing 

weaknesses in the corporate governance and audit practices of many public 

companies. As a result of this perceived widespread corporate misconduct, 

regulators, investor organizations, stock exchanges and corporations themselves 

turned their attention to the importance of strong corporate governance and disclosure 

practices and procedures. 

The NYSE and NASDAQ proposed new corporate governance rules for listed 

companies. Thereafter, in July 2002 Congress passed the Sarbanes-Oxley Act of 

2002, a comprehensive Federal corporate governance law for publicly owned 

corporations. Among other things, the law directed the Securities and Exchange 

Commission to promulgate regulations affecting a wide range of corporate 

governance and financial disclosure practices, from CEO certification of reports to 

new duties for audit committees.

The Enterprises overseen by OFHEO have maintained strong corporate governance 

policies and work to make them effective. OFHEO's rules and ongoing, on-site 

examinations reinforce a positive corporate governance environment. Corporate 

governance remains a strong feature of the regulatory regime and of the culture at the 

Enterprises reflected in both OFHEO's rules and examination program as well as 

corporate initiatives of the Enterprises. OFHEO will remain vigilant in its support for 

up-to-date and effective corporate governance at the Enterprises.
CHAPTER ONE - YEAR IN REVIEW

5

Safety and Soundness — On June 21, 2002, OFHEO proposed for public comment a regulation 

designed to increase transparency and public awareness of minimum supervisory standards of 

OFHEO used in overseeing the safe ty and soundness of Fannie Mae and Freddie Mac. in a 

manner consistent with recent rulings of the United States Supreme Court. The regulation 

addressed the authority of OFHEO to provide guidances relating to safe and sound operations of 

the Enterprises and provided a location for such guidances. The regulation was adopted as final 

on August 30, 2002, and became effective on September 30, 2002. 

Capital — On March 15, 2002, OFHEO adopted the first amendment to the risk-based capital 

rule, that had been published in September of 2001. It refined and clarified certain aspects of the 

rule and became effective April 15, 2002. On September 12, 2002, OFHEO published a proposal 

that would amend the risk-based capital rule to enhance the accuracy of the calculation and the 

stress test, and made ten technical and corrective changes. OFHEO adopted the ten technical 

and corrective amendments on November 1, 2002, effective upon publication, and reopened and 

extended the comment period to October 29, 2002, to allow further comment on three

additional changes relating primarily to accounting rule revisions. These three changes were 

finalized in 2003. 

OFHEO ACTIONS ON EXECUTIVE COMPENSATION

OFHEO’s enabling statute and the Enterprise charter acts grant the Director of OFHEO

oversight responsibility in the area of executive compensation. OFHEO’s statute requires the 

Director to prohibit the Enterprises from providing excessive compensation to any executive 

officer. Specifically, the statute provides that compensation must be reasonable and comparable 

with compensation paid by other similar businesses to executives having similar duties and 

responsibilities. “Similar businesses” includes publicly held financial institutions or major

financial services companies.

Additionally, the Enterprises’ charter acts require the Enterprises to obtain the prior approval of 

OFHEO’s Director before entering into or changing termination agreements with their executive 

officers.

The charter acts provide that the Director of OFHEO may not approve any such agreement 

unless the Director determines that the benefits provided under the agreement are comparable 

to benefits provided under such agreements for officers of other public and private entities 

involved in financial services and housing interests who have comparable duties and

responsibilities.

In 2002, an executive compensation consultant retained by OFHEO completed a study initiated 

in 2001, which compared the components and levels of executive compensation of executive 

officers at the Enterprises with those of executive officers in other similar businesses involving 

similar duties and responsibilities. The study’s results assist OFHEO in its supervisory review of 

executive compensation. During 2002, OFHEO approved no termination agreements. 
CHAPTER ONE - YEAR IN REVIEW

6

OFHEO RESEARCH AND PUBLICATIONS

During 2002, OFHEO continued research and analysis on a variety of topics. These include 

subprime loans and the housing market, credit scores as determinants of mortgage prepayment 

and default, improving the precision of repeat sales house price indices, developing alternate 

ways to evaluate Enterprise risk, and single family mortgage lending in the internet era. OFHEO 

also conducted research for its February 2003 report, Systemic Risk: Fannie Mae, Freddie Mac and the 

Role of OFHEO. In March of 2002, OFHEO initiated its series of staff working papers. The two 

papers issued in 2002 can be found on OFHEO’s web site at www.ofheo.gov. OFHEO’s

interdisciplinary Research Council continued to coordinate research plans and activities and 

ensure that research and analysis is focused on achieving OFHEO’s strategic objectives. In 

future years, OFHEO anticipates undertaking additional research and analysis, including

looking at issues that arose in comments on the proposed risk-based capital rule and using the 

risk-based capital stress test to assess alternative stress scenarios to analyze the Enterprises' 

safety and soundness. 

OFHEO also contributed its expertise in working with other Federal agencies. OFHEO worked 

with the Securities and Exchange Commission and the U. S. Treasury on researching issues for 

the joint staff report, Enhancing Disclosure in the Mortgage –Backed Securities Markets, issued in January 

2003. 

In addition to its housing and mortgage related research in 2002, OFHEO also completed a 

project dealing with the performance of small business loans at the request of the Office of 

Management and Budget and the Small Business Administration (SBA). Using data supplied by 

the SBA and inte rnal default and prepayment modeling expertise, OFHEO developed an

econometric model of the behavior of loans in the SBA’s section 7(a) loan guarantee program and 

a budget subsidy model for the program to calculate budget costs. SBA reimbursed OFHEO for 

the development expenses, and began using the model for the FY 2003 budget. 

In 2002, OFHEO published its annual review Mortgage Markets and the Enterprises in 2001. This 

paper describes key developments in housing and mortgage markets, as well as Enterprise 

business activities and financial results. OFHEO also continued quarterly publication of its 

House Price Index (HPI), which uses Enterprise data to calculate changes in house prices for the 

nation as a whole, the nine Census Divisions, the 50 states and the District of Columbia, and 331 

Metropolitan Statistical Areas. The HPI is based on 20 million repeat transactions over 28 years. 

OFHEO developed the HPI as a key input for its risk-based capital stress test. It is now 

regularly reported by media organizations throughout the nation and used by researchers to 

analyze house price behavior (Map on following page). 
CHAPTER ONE - YEAR IN REVIEW

7

OFHEO House Price Index

U.S. Map

Fourth Quarter 2001 – Fourth Quarter 2002
CHAPTER ONE - YEAR IN REVIEW

8

FINANCIAL AND OTHER DISCLOSURES (Box 1– 2)

In July 2000, OFHEO announced its intent to adopt a comprehensive regulatory 

regime, including various written policies and procedural requirements intended 

to ensure the safe and sound operations of Fannie Mae and Freddie Mac. 

Prominent among the subject areas announced was the adoption and 

implementation of a regulations and policies for Enterprise financial information 

disclosure. OFHEO recognizes that a strong supervisory program must 

encompass capital regulation, broad supervision of operations and risk 

management and transparency.

Transparency and openness as to financial condition and business practices 

promote market discipline and access to funding in the capital markets. Full 

and adequate disclosure of information by the Enterprises concerning their 

financial conditions and risks is an essential element of OFHEO supervisory 

responsibility to ensure the financial integrity and capital adequacy of the 

Enterprises.

While the offering and sale of their securities are exempt from the registration 

requirements of the Securities Act of 1933 and their securities are "exempt 

securities" under the Securities Exchange Act of 1934, the Enterprises 

determined to voluntarily register their common stock with the SEC under the 

provisions of the Exchange Act. In July 2002, the Enterprises made their 

announcement in a joint presentation with the SEC, Treasury and OFHEO. 

This registration triggers compliance with the periodic disclosure requirements 

of the Exchange Act to the same extent as other publicly traded companies. 

The rules of the 1934 Act make this voluntary action permanent for all intents 

and purposes. OFHEO proposed and adopted in early 2003 a rule setting forth 

OFHEO's authority over Enterprise disclosures and supporting their voluntary 

registration with the SEC.

In addition, OFHEO undertook with the Department of Treasury and the SEC a 

review of the adequacy of disclosure practices in the mortgage-backed 

securities market. The review, published in January 2003, recommended six 

areas where enhanced disclosure was appropriate and beneficial. Fannie Mae 

and Freddie Mac have agreed to implement the recommendations. 

Disclosure remains a central element of OFHEO's supervisory program and a 

critical element for the Enterprises to remain safe and sound. OFHEO will 

continue to enhance the disclosure practices of the Enterprises.
CHAPTER TWO - THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET 

9

CHAPTER TWO: THE DEVELOPMENT OF THE U. S.

 SECONDARY MORTGAGE MARKET

A secondary mortgage market consists of lenders, investors, and government agencies that buy 

and sell residential mortgages and mortgage-backed securities (MBS). Fannie Mae and Freddie 

Mac are the two most important institutions in this market, and their continued financial health 

is critical for its continued success. The secondary market in the U.S. is highly developed. 

About 60 percent of single-family mortgages originated each year are funded through the sale of 

MBS, and most sales of whole loans occur as part of the creation of pools of mortgages that 

collateralize MBS. Thus, the most important parts of the U.S. secondary mortgage market are 

the three national submarkets for MBS: 

1. The market for MBS guaranteed by the Government National Mortgage Association 

(Ginnie Mae), a Federal government agency that guarantees MBS issued by private firms 

and backed by pools of single- and multifamily mortgages insured by the Federal Housing 

Administration (FHA) or guaranteed by the Department of Veterans Affairs (VA) or the 

Rural Housing Service (RHS).

2. The market for MBS guaranteed by Fannie Mae and Freddie Mac, two governmentsponsored enterprises (GSEs) chartered by Congress to support the secondary mortgage 

market. Fannie Mae and Freddie Mac guarantee MBS backed by nonjumbo single-family 

mortgages—loans with balances less than a prescribed limit, which is $322,700 in 2003—as 

well as multifamily mortgages. Nearly all the loans backing MBS guaranteed by the

Enterprises are conventional mortgages—loans that carry no government insurance or

guarantee.

3. The market for nonagency MBS. Those securities carry no guarantee by Ginnie Mae,

Fannie Mae, or Freddie Mac and are collateralized by pools of conventional mortgages with 

loan balances that are too large for the Enterprises to buy (jumbo loans), mortgages to 

borrowers who provide little documentation or have credit problems of varying degrees of 

severity, or home equity loans.

This chapter summarizes the development of the U.S. secondary mortgage market by examining 

the evolution of those three submarkets and their predecessors. The focus is on the secondary 

market for loans that finance single-family homes. The table on the following page summarizes 

the most important developments in chronological order. 
CHAPTER TWO - THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET 

10

Milestones in the Development of 

the U.S. Secondary Market for Single-Family Mortgages

Year Event

1938 The Federal National Mortgage Association (FNMA or Fannie Mae) is established under Title III of the 

National Housing Act to purchase residential mortgages insured by the Federal Housing Administration 

(FHA). 

1954 Title III of the National Housing Act is amended to authorize Fannie Mae to issue nonvoting stock to 

the public to finance its opera tions. A conditional line of credit to the Treasury enables Fannie Mae to 

borrow from the public at low interest rates. 

1957 States authorize Mortgage Guaranty Insurance Corporation (MGIC) to provide private mortgage

insurance on conventional loans—those that do not carry government insurance or guarantees.

1966 Fannie Mae issues a series of collateralized bonds backed by mortgages owned by Fannie Mae, FHA and 

the Veterans Administration (VA). 

1968 The Housing and Urban Development Act of 1968 replaces Fannie Mae with 1) a new Fannie Mae that is 

a government-sponsored enterprise (GSE) authorized to buy mortgages insured by FHA or guaranteed 

by VA and 2) the Government National Mortgage Association (GNMA or Ginnie Mae), which is a 

Federal agency charged with guaranteeing mortgage-backed securities (MBS) backed by pools of those 

loans. 

1970 Ginnie Mae guarantees its first MBS.

1970 Title III of the Emergency Home Finance Act of 1970 charters the Federal Home Loan Mortgage

Corporation (FHLMC or Freddie Mac) to provide a secondary market for conventional mortgages, 

authorizes Fannie Mae to purchase such loans, and limits the size of the mortgages those GSEs may buy. 

1971 Freddie Mac issues its first guaranteed MBS. 

1974 Fannie Mae and Freddie Mac adopt a standard mortgage loan document to be used in all 50 states for 

residential mortgages they purchase.

1977 Bank of America issues the first private MBS.

1978 Maggie Mae (MGIC National Mortgage Corporation) and Pennie Mae (PMI Mortgage Corporation) 

issue the first private MBS backed by jumbo mortgages—conventional loans with balances too large for 

the GSEs to buy. 

1981 Fannie Mae issues its first guaranteed MBS. 

1981 Freddie Mac institutes a “swap program” in which a lender creates a pool of mortgages and then swaps 

it for Freddie Mac MBS. Fannie Mae creates a comparable swap program.

1982 Residential Funding Corporation (RFC), a private conduit, spurs the development of an active 

secondary market for jumbo mortgages by offering to buy multiple types of loans each business day.

1983 Freddie Mac issues the first collateralized mortgage obligation (CMO), a type of multi-class MBS.

1984 The Secondary Mortgage Market Enhancement Act of 1984 (SMMEA) authorizes shelf registration of 

private MBS with a double-A or triple-A credit rating and overrides certain state laws, eliminating legal 

obstacles to the full development of the secondary market for private MBS. The act also authorizes the 

transfer of Freddie Mac stock from the Federal Home Loan Banks to their thrift members. 

1986 The Tax Reform Act of 1986 promotes the use of Collateralized Mortgage Obligations (CMOs) by 

creating the Real Estate Mortgage Investment Conduit (REMIC), a vehicle that minimizes tax liability 

for multi-class MBS. 

1989 The Financial Institutions Reform, Recovery and Enforcement Act of 1989 (FIRREA) severs Freddie 

Mac’s ties to the Federal Home Loan Banks and gives it the same ownership structure as Fannie Mae.

1992 The Federal Housing Enterprises Financial Safety and Soundness Act establishes the Office of Federal 

Housing Enterprise Oversight as the safety and soundness regulator for Fannie Mae and Freddie Mac 

and gives the Secretary of Housing and Urban Development (HUD) general mission regulatory 

authority. 

1995 Fannie Mae and Freddie Mac begin to use automated underwriting systems. 

1997 The Federal Home Loan Banks begin to participate in the secondary mortgage market by investing in 

nonjumbo conventional single-family mortgages. 

2003 The volume of outstanding mortgages securitized by the secondary market grows to $3.77 trillion.
CHAPTER TWO - THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET 

11

Single-Family Mortgage Lending in the U.S. Before the Great Depression

Prior to the 1930s, most single-family mortgages in the U.S. were balloon loans with very short 

maturities e.g. three to five years. The mortgages generally did not amortize, and the borrower 

either repaid his or her loan in full upon the completion of the term or, for a fee, took out a new 

mortgage. Lenders, primarily thrift institutions, generally obtained mortgage funds from the 

deposit base in their communities. 

That housing finance system had several shortcomings. Borrowers had no access to long-term, 

fixed-rate funding, and the volume of lending in a locality was dependent on the supply of funds 

in the immediate geographic area. If the quantity of funds available in a local market was less 

than the quantity demanded, interest rates in that market rose. As a result, there were 

substantial regional differences in mortgage interest rates and significant short-term 

fluctuations in the volume of lending. Overall, the system did not provide the market stability 

necessary for a sustained and high level of investment in housing.

The Federal Government’s Creation of FHA and Fannie Mae in the 1930s

Those shortcomings were exacerbated by the financial traumas of 1931-33, when thousands of 

commercial banks and thrift institutions failed, half of all single-family mortgages defaulted and 

more than a quarter of a million foreclosures occurred each year. In response, the Federal 

government took a number of actions to support the banking sector and consumer lending, 

including the creation of Federal deposit insurance to encourage households to invest in bank 

and thrift deposits and the establishment of the Federal Home Loan Bank System to provide 

long-term funding to thrift institutions engaged in mortgage lending.

Two other Federal responses contributed to the development of the U.S. secondary mortgage 

market. First, the National Housing Act of 1934 created FHA to provide government insurance 

for mortgages made by private lenders. FHA pioneered the long-term, fixed-rate, selfamortizing residential mortgage, which became the standard loan used to finance the purchase 

of single-family homes. FHA also promoted standardization of the terms of mortgage lending, as 

discussed more fully in the next section.

Second, in 1934 the Congress authorized the chartering of privately owned, Federally supervised 

national mortgage associations to purchase and sell home loans. The private sector was

reluctant to establish such associations, however, due to uncertainty about their profitability. 

In 1938, the Reconstruction Finance Corporation (RFC)—a Depression-era Federal agency—

chartered and provided the initial capital to a subsidiary, the National Mortgage Association of 

Washington, which became known as Fannie Mae, which was authorized to buy and sell FHAinsured mortgages and to raise funds by borrowing from the U.S. Treasury or the public. Fannie 

Mae was authorized in 1948 to invest in mortgages guaranteed by VA and was transferred in 

1950 to the Housing and Home Finance Agency, later part of the Department of Housing and 

Urban Development (HUD). 
CHAPTER TWO - THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET 

12

Early Trading in Single-Family Mortgages After the Great Depression

Prior to the mid-1950s, the U.S. secondary mortgage market involved only the sale of whole 

loans to investors. Mortgage banks and thrift institutions originated mortgages and sold them 

to life insurance companies, pension funds, and other thrifts. Life insurance companies and 

pension funds generally purchased whole mortgages from mortgage companies, whereas thrifts 

on the East Coast purchased mortgages from thrifts elsewhere in the country. Fannie Mae 

purchased FHA-insured and VA-guaranteed mortgages from lenders. With funds acquired from 

selling mortgages to investors, lenders were able to make new loans.

The Federal government facilitated that trading in whole loans. FHA mortgage insurance and, 

after World War II, VA loan guarantees protected mortgage investors from default losses. In 

addition, FHA required that homes financed with Federally backed mortgages be built to certain 

standards. Most states and localities quickly required that all homes meet those building 

standards, which VA also adopted. The FHA and VA programs also developed nationwide 

standards for hazard and title insurance, the appraisal of property values, the underwriting of 

applications made by prospective borrowers, and loan servicing—the management of payments 

to local tax authorities, hazard insurers, and investors, and the handling of delinquent loans.

Those nationwide standards and practices, which mortgage banks adopted, made the significant 

volume of FHA-insured and VA-guaranteed mortgages relatively homogeneous, which

facilitated pricing of these assets by buyers and sellers. For investors, Federal credit

enhancements and hazard and title insurance on those loans and standardized loan

underwriting and servicing reduced the risk of not receiving the interest and principal payments 

on their investment. Administrative problems regarding late payments or default were usually 

handled for a fee by another institution that functioned as the servicer. 

The Transformation of Fannie Mae and the Creation of Ginnie Mae

In 1954, the Congress reorganized Fannie Mae gave it a statutory charter, and expanded its 

responsibilities to include the management of certain mortgages owned by the Federal

government. The Charter Act of 1954 also included a procedure whereby Fannie Mae would, 

over a period of time, be transformed into a privately owned and managed corporation. To 

finance Fannie Mae’s secondary market operations, the act authorized issuance of nonvoting 

preferred stock to the Treasury. Lenders that sold mortgages to the corporation were required 

to purchase a certain amount of common stock based on the amount of loans they sold to Fannie 

Mae.

Fannie Mae was also authorized to raise funds by issuing notes and debt instruments to the 

public in the Federal agency debt market, with the U.S. Treasury permitted to acquire up to 

$500 million of those obligations (an amount raised to $2.25 billion in 1957). That presence in 

the Federal agency debt market and the Treasury “backstop” allowed Fannie Mae to borrow at 

lower rates of interest than it otherwise could have in the capital markets, despite the absence of 

an explicit government guarantee.
CHAPTER TWO - THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET 

13

The Housing and Urban Development Act of 1968 divided Fannie Mae into two entities. The 

assets, liabilities, and management associated with the agency’s secondary market operations 

were transferred to a new GSE, which retained the Fannie Mae name. The statute continued to 

restrict Fannie Mae to purchasing FHA-VA mortgages. All Treasury-held preferred shares

provided for in the 1954 Act were retired, eliminating government ownership. The 1968 Act also 

created a new Federal agency, Ginnie Mae, which remained part of HUD.

Among other things, the 1968 Act authorized Ginnie Mae to guarantee MBS issued by lenders 

and collateralized by pools of mortgages insured by FHA and guaranteed by VA or RHS. The 

first MBS guaranteed by Ginnie Mae was issued in 1970. The Ginnie Mae guarantee program 

was a critical step in the development of the U.S. secondary mortgage market as we know it 

today.

Ginnie Mae guarantees the timely payment of the principal and interest due on MBS as well as 

the timely repayment of MBS principal associated with outstanding loan balances when

borrowers prepay or default on their mortgages. In the event of default, Ginnie Mae makes 

timely payments to the security purchaser and takes responsibility for settling accounts with 

the servicer. That relieves investors from administrative problems and delays in receiving 

mortgage payments. For Ginnie Mae’s guarantee, which is backed by the full faith and credit of 

the government, the MBS issuer is charged a guarantee fee, which is covered by the yields on the 

mortgages in the securitized pool. 

The Ginnie Mae MBS guarantee program dramatically changed the secondary mortgage market. 

The guarantee enabled originators of FHA and VA mortgages to pool the loans and issue MBS 

collateralized by loan pools. Those securities were underwritten by investment banking firms 

and sold to investors that had not previously participated in the secondary market for whole 

loans. Investors were attracted to the securities because FHA insurance or a VA or RHS 

guarantee minimized the default risk of the collateral and Ginnie Mae’s guarantee assured timely 

payment. Those Federal credit enhancements made the credit risk of the MBS identical to that 

of U.S. Treasury securities. 

In the 1970s the Ginnie Mae MBS program rapidly became the preferred means of funding FHA 

and VA single-family mortgages. Issuance of MBS guaranteed by Ginnie Mae represented less 

than 20 percent of FHA and VA originations in 1971, but that share exceeded two-thirds after 

1978. Since the end of the 1980s, virtually all FHA-insured and VA-guaranteed single-family 

mortgages have been securitized with MBS guaranteed by Ginnie Mae. Figure One shows the 

volume of Ginnie Mae-guaranteed MBS backed by single-family loans outstanding from 1970 

through 2002. 
CHAPTER TWO - THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET 

14

Figure One

Ginnie Mae-Guaranteed Single-Family MBS Outstanding, 1970-2002 

The Creation of Freddie Mac and the Development of the Secondary Market 

for MBS Backed by Conventional Mortgages and Guaranteed by the 

Enterprises

A volatile interest rate environment in the late 1960s, combined with ceilings on deposit yields 

at thrift institutions, resulted in credit shortages and a reduction in the flow of funds to the 

conventional mortgage market. There was no secondary market for conventional single-family 

mortgages comparable to that being fostered by the Ginnie Mae guarantee program, despite the 

fact that conventional loans accounted for the majority of residential mortgage originations. 

Thus, finding a way to securitize conventional loans became an important concern of thrifts and 

the Congress. 

The Congress enacted the Emergency Home Finance Act of 1970 specifically to create a

secondary market for conventional mortgages. That act chartered the Federal Home Loan 

Mortgage Corporation (the FHLMC or, informally, Freddie Mac) to provide a secondary

mortgage market for thrifts and other originators of conventional mortgages. Freddie Mac was 

authorized to purchase and make commitments to purchase conventional mortgages. The Act 

also allowed Fannie Mae to purchase conventional mortgages and gave Freddie Mac authority to 

purchase FHA-VA loans. Those provisions were intended to allow both Enterprises to compete 

for all residential mortgages. In practice, Freddie Mac has seldom purchased FHA or VA loans, 

and Fannie Mae has significantly changed its practices to purchase predominantly conventional 

loans.
CHAPTER TWO - THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET 

15

The Federal Home Loan Banks and their member thrift institutions initially owned and 

capitalized Freddie Mac, but the Enterprise’s ownership structure changed over time. The 

Secondary Mortgage Market Enhancement Act of 1984 (SMMEA) authorized the issuance of 

Freddie Mac stock to the thrifts that had belonged to the Federal Home Loan Bank System in 

1970 when the Enterprise was chartered. In 1988, the Federal Home Loan Bank Board allowed 

sales of Freddie Mac stock to private investors. The Financial Institutions Reform, Recovery, 

and Enforcement Act of 1989 (FIRREA) effectively severed the Enterprise’s ties to the Federal 

Home Loan Bank System, gave Freddie Mac the same ownership structure as Fannie Mae, and 

subjected Freddie Mac to the general regulatory authority of the Secretary of HUD. Freddie Mac 

began to issue and guarantee MBS backed by conventional loans it purchased in 1970. Fannie 

Mae continued to hold the mortgages it purchased in portfolio during the 1970s and began to 

issue guaranteed MBS in 1981.

Purchases of conventional single-family mortgages by Fannie Mae and Freddie Mac (both

outright purchases of whole loans and guarantees of MBS) expanded dramatically in the 1980s. 

That growth was spurred in part by the declining importance of thrift institutions as a source of 

long-term financing for residential mortgages. In response to volatile interest rates, a decline in 

the industry’s profitability, and alterations in Federal policy, thrifts abandoned their historical 

practices of holding most of the single-family loans they originated until maturity. Instead, they 

chose to operate more like mortgage banks, selling mortgages into the secondary market. 

Falling interest rates during the mid-1980s, which sparked a wave of refinancing, also

contributed substantially to the Enterprises’ growth.

Mortgages purchased or securitized by Fannie Mae and Freddie Mac jumped sharply in 1982, 

when many thrifts increased the liquidity of their portfolios by swapping whole loans for MBS 

guaranteed by the Enterprises. First Freddie Mac and then Fannie Mae had instituted “swap” 

programs in 1981 to allow lenders to increase the liquidity of mortgages they owned. The 

Enterprises’ business volumes rose even more during the refinancing boom of 1985-86.

In 1986, the volume of nonjumbo, conventional, fixed-rate mortgages (FRMs) purchased by 

Fannie Mae and Freddie Mac totaled one-half of originations of those loans. That share reached 

69 percent in 1989 and has remained near or above that level ever since. Figures Two and Three 

show the single-family mortgages owned or securitized by Fannie Mae and Freddie Mac from 

1971 through 2002.

Since the mid-1980s there has been a two-tier market for conventional FRMs, with borrowers 

generally paying lower interest rates on non-jumbo fixed-rate loans, which have principal

balances low enough to make them eligible for Fannie Mae and Freddie Mac to buy. That 

structure arises from the benefits of access to the guarantees provided by Fannie Mae and 

Freddie Mac, which is reflected in the yields on nonjumbo FRMs in the primary market. That 

reduction was about 30-40 basis points in the latter half of the 1980s, but narrowed to about 20-

25 basis points by the late 1990s. The Ginnie Mae guarantee program had already had a similar 

effect on the yields of FHA-insured mortgages.

Importantly, because the Federal government’s backing of support for Ginnie Mae, and support 

for Fannie Mae and Freddie Mac, resulting in lower yields on the mortgages they purchase or 
CHAPTER TWO - THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET 

16

that are securitized with their guarantees, the role of private conduits in the U.S. secondary 

mortgage market has been limited to sectors of the market not served by these agencies.

In 1983 Freddie Mac issued the first collateralized mortgage obligation (CMO), which is a type 

of a multi-class MBS. A single-class MBS allocates all payments on a pool of mortgages to 

investors in proportion to their investment in the MBS collateralized by the pool. In a multiclass MBS issue, the cash flows from a pool of mortgages are allocated to multiple classes of 

securities, where each class differs in terms of the amount of principal and interest payments on 

the mortgages that investors in that class receive each month. Multi-class MBS promote the 

efficiency of the secondary mortgage market by allowing issuers to tailor the cash flows and risk 

of different classes of securities to match the preferences of different groups of investors, thereby 

broadening the universe of investors who are willing to hold mortgage assets.

The Tax Reform Act of 1986 stimulated the use of multi-class MBS by creating Real Estate 

Mortgage Investment Conduits (REMICs), a vehicle that allows issuers of multi-class MBS to 

avoid double taxation of interest income at the trust and the investor level. A substantial 

portion of MBS guaranteed by Fannie Mae, Freddie Mac, and Ginnie Mae are used to

collateralize REMICs. Each agency earns fees for guaranteeing REMIC securities.

The advent of REMICs spurred the growth of mortgages securitized by Fannie Mae and Freddie 

Mac in the late 1980s. Another stimulus was the implementation of the international agreement 

on capital regulation of banks known as the Basel Accord. Under that compact, the Federal 

bank regulatory agencies have required banks and thrifts to hold 2.5 times as much capital 

against high quality private MBS or whole mortgages as they must against high-quality MBS 

including those guaranteed by Fannie Mae and Freddie Mac. 

Three other events in the 1990s affected the secondary market for nonjumbo conventional 

mortgages. First, the Federal Housing Enterprises Safety and Soundness Enhancement Act of 

1992 established the Office of Federal Housing Enterprise Oversight (OFHEO) as the safety and 

soundness regulator of Fannie Mae and Freddie Mac. The 1992 Act imposed stringent Federal 

capital standards on the Enterprises and imposed, a safety and soundness regulatory regime, 

enhancing the stability of the secondary mortgage market. 

Second, in the early 1990s Fannie Mae and Freddie Mac began increasing their on-balance sheet 

assets, primarily by buying MBS and REMICs. Buying mortgage assets allows the Enterprises 

to take full advantage of their low funding costs. This has facilitated increases increases in their 

earnings at double-digit rates despite less rapid growth in nonjumbo conventional mortgage 

debt outstanding, and it has added stability to the mortgage securities market in times of 

otherwise weak demand. Figures Two and Three show the acceleration of the growth in the 

Enterprises’ mortgage assets in the 1990s.
CHAPTER TWO - THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET 

17

 Figure Two

 Single-Family Mortgages Owned or Securitized by Fannie Mae, 1971-2002

Figure Three

Single-Family Mortgages Owned or Securitized by Freddie Mac, 1971-2002 
CHAPTER TWO - THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET 

18

Third, in 1995 first Freddie Mac and then Fannie Mae each began to encourage lenders to use its 

automated underwriting system (AUS) to evaluate the credit risk of mortgages prior to

origination. Widespread use of those systems has helped lenders reduce the time and expense 

involve in originating loans, thereby increasing the efficiency of the housing finance system. 

Evolution of the Nonagency Secondary Mortgage Market 

Although private conduits issued the first nonagency MBS in the late 1970s, those programs 

were not major successes. Between 1979 and 1982, the nonagency MBS market financed less 

than $2 billion in residential mortgages. Significant growth in that market began only with the 

creation of the Residential Funding Corporation (RFC), a private conduit, in 1982. The RFC 

was successful because it was willing to be in the market every day with rates and prices for a 

menu of mortgage products and to manage the risk associated with funding and hedging loans 

until its inventory was large enough to create a MBS.

The nonagency MBS market securitized nearly $10 billion in loans between 1982 and 1986. By 

1986, private conduits were playing a dominant role in the market for jumbo loans. The passage 

of the Secondary Mortgage Market Enhancement Act of 1984 (SMMEA) provided a major boost 

by allowing shelf registration with the Securities and Exchange Commission (SEC) of securities 

that received a credit rating of double A or higher. 

The growth of the nonagency MBS market received another boost when the REMIC authority in 

the Tax Reform Act of 1986 encouraged the use of multi-class MBS. Private MBS issuers can 

subordinate the claims of investors in junior classes of REMIC securities to those of investors in 

more senior classes, thereby obtaining a credit enhancement of the senior securities without 

having to purchase bond insurance. The use of senior/sub REMIC structures facilitated rapid 

growth in outstanding nonagency MBS in the 1990s. Other factors contributing to that growth 

were the securitization of loans to borrowers that provide little documentation (so-called Alt A 

mortgages), loans to borrowers that have credit problems of varying degrees of severity (sub- or 

nonprime mortgages), and home equity loans. Figure Four shows nonagency single-family MBS 

outstanding from 1987 through 2002.

The Emergence of the Federal Home Loan Bank System

In the second half of the 1990s a third GSE, the Federal Home Loan Bank System, also began to 

play a direct role in the U.S. secondary mortgage market. The Congress chartered the System in 

the 1930s to provide long-term loans to thrifts that financed residential mortgages. The System 

is a cooperative consisting of 12 regional banks, each of which is cooperatively owned by 

member institutions, most of which are banks and thrifts. 

Recently, a number of the Federal Home Loan Banks have begun to invest in nonjumbo, singlefamily FRMs originated by member institutions. In most cases, a Bank will absorb all interest 

rate risk on the loans and share the credit risk with the originating institution. That approach is 

an alternative to the lender selling the mortgages to Fannie Mae or Freddie Mac or to a larger 

institution that would place them in a pool and issue MBS guaranteed by one of the Enterprises.
CHAPTER TWO - THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET 

19

Figure Four

Nonagency Mortgage Securities Outstanding, 1987-2002

The Federal Home Loan Banks have increased their ownership of residential mortgages through 

such programs significantly in recent years. Specifically, single-family mortgages owned by the 

System rose from less than $1 billion at the end of 1998 to $16.1 billion at year-end 2000, $27.6 

billion at year-end 2001, and $60.6 billion at year-end 2002.

The Securitized Share of Single-Family Residential Mortgage Debt

The share of single-family residential mortgage debt outstanding financed through

securitization grew steadily between 1970 and 2002, exceeding 58 percent at the end of the 

latter year (see Figure Five). The share of the single-family market financed with MBS

guaranteed by Ginnie Mae exceeded 10 percent in 1982, rose to 15 percent in 1991 and 1992, and 

declined thereafter, falling to below 8 percent in 2002. That decline reflected the shrinking 

share of single-family mortgage debt outstanding insured by FHA or guaranteed by VA or RHS. 

MBS guaranteed by Fannie Mae and Freddie Mac grew rapidly after 1982 and accounted for over 

30 percent of single-family debt outstanding at the end of 1993. Thereafter, the share of the 

market securitized by the Enterprises grew more slowly before accelerating in 2001 or 2002. By 

year-end 2002, the Enterprises’ securitized share of the market had risen to nearly 40 percent of 

the overall market. The share of the single-family market financed with nonagency mortgage 

securities rose steadily after 1986, reaching nearly 11 percent at year-end 2002.
CHAPTER TWO - THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET 

20

 Figure Five

 Securitized Share of Single-Family Residential Debt Outstanding

The Proportion of Single-Family Residential Mortgage Debt Outstanding 

Held by GSEs

As Fannie Mae and Freddie Mac increased their mortgage assets in the 1990s, the share of singlefamily mortgage debt outstanding held by the Enterprises rose from less than 5 percent in 1990 

to over 21 percent at the end of 2002 (see Figure Six). Most of that growth resulted from the 

rapid expansion of Fannie Mae and Freddie Mac holdings of Enterprise guaranteed MBS and, 

since the late 1990s, nonagency MBS. At year-end 2002, whole loans held by Fannie Mae and 

Freddie Mac accounted for less than 4 percent of the market, down from a high of 6 percent at 

points in the 1980s, whereas MBS held by the Enterprises accounted for nearly 17 percent. 

Federal Home Loan Bank mortgage investments have grown to just under 1 percent of singlefamily mortgage debt outstanding.

0

10

20

30

40

50

60

19701972197419761978198019821984198619881990199219941996199820002002

Percent

Nonagency Mortgage Securities GNMA MBSs

Enterprise MBSs Total MBSs
CHAPTER TWO - THE DEVELOPMENT OF THE U. S. SECONDARY MORTGAGE MARKET 

21

Figure Six

Proportion of Single-Family Residential Mortgage Debt 

Outstanding Held by GSEs

CONCLUSION

The expansion of the secondary market for single-family mortgages in the last three decades has 

had several beneficial effects on the housing finance system and the housing sector in the U.S. 

Local and regional markets for FRMs have been integrated with the international capital

markets, and the interest rates on fixed-rate loans financed by MBS guaranteed by Ginnie Mae, 

Fannie Mae, and Freddie Mac have been reduced. Lending practices in the primary market have 

become more standardized, competition among mortgage originators has increased, the up-front 

costs of financing a home purchase or refinancing a mortgage have been reduced, households 

have a broader menu of financing options from which to choose, and homeowners can easily tap 

into the wealth they have accumulated in their homes. Those effects have contributed to greater 

housing activity and homeownership in the U.S. 

0

2

4

6

8

10

12

14

16

18

20

22

19701972197419761978198019821984198619881990199219941996199820002002

Percent

Enterprise MBSs Whole Loans

Other Mortgage Assets* Total GSE Mortgage Assets
CHAPTER THREE - CAPITAL REGULATION

22

CHAPTER THREE: CAPITAL REGULATION

The administration of OFHEO’s capital adequacy program is multi-faceted. First, OFHEO was 

required by the 1992 Act to establish two quantitative assessments of capital – minimum and 

risk-based. While the minimum, or ratio-based, standards have been in place since 1993, 2002 

marks the advent of OFHEO’s risk-based capital standard, which became enforceable for the 

third quarter of 2002. Thus, the Enterprises are required to maintain sufficient capital to pass 

both of the two tests. Second, OFHEO’s examination program provides a qualitative assessment 

of capital adequacy through a continuous and comprehensive examination of each Enterprise. 

Both the quantitative and qualitative measurements of capital adequacy are supplemented with 

other tests, analysis, and research. Other regulatory tools supplement OFHEO’s regulatory 

framework that allow OFHEO to respond to safety and soundness concerns prior to their 

impact on capital adequacy. Failure to meet the capital adequacy requirement triggers a range of 

regulatory responses, depending upon the capital classification of an Enterprise.

RISK-BASED CAPITAL OVERVIEW

What is the Risk-Based Capital Standard?

The principal behind risk-based capital is to ensure a close relationship between the level of risk 

undertaken at a particular time by an Enterprise, and the level of capital it must hold. 

OFHEO’s stress test is tailored to the specific risks of the Enterprises – guaranteeing and 

investing in mortgages. OFHEO’s stress test simulates an Enterprise’s financial performance 

over a 10-year period under severe economic conditions. These conditions include high levels of 

mortgage defaults, with associated losses and large, sustained movements in interest rates, both 

increasing (up-rate scenario) and decreasing (down-rate scenario).

The 10-year stress test is used to measure risk in the context of each Enterprise’s overall 

portfolio, including the effectiveness of their risk management positions. The results of the 

stress test determine the amount of total capital — core capital plus a general allowance for loan 

losses less specific reserves — that an Enterprise must hold to absorb projected losses flowing 

from future adverse interest-rate and credit-risk conditions, plus an additional 30 percent to 

cover unspecified management and operations risk. 

How it Works

The OFHEO RBC rule is implemented using a collection of statistical and econometric models 

incorporated into a computer code developed by OFHEO. OFHEO uses this detailed computer 

model to simulate each Enterprise’s cash flows associated with mortgages and other financial 

assets and obligations. The modeling of incoming and outgoing cash flows captures the risks 

embedded in those financial assets and obligations and the benefits of the hedges each

Enterprise has set in place. 
CHAPTER THREE - CAPITAL REGULATION 

23

This type of cash flow modeling provides an economic valuation versus a market valuation of the 

Enterprises.

The model uses specific data from the Enterprises to model cash flows of all assets, liabilities, 

and off-balance sheet obligations. The model captures economic changes, mortgage

performance characteristics (e.g., defaults, prepayments, and credit enhancements), and various 

accounting assumptions that influence the timing and amount of cash flows. The model

calculates gains and losses for each month over the 10-year period. The model then determines 

the amount of capital the Enterprise must have at the beginning of the stress test, plus the 

additional 30%, to maintain positive capital over the 10-year stress period. The risk-based 

capital level for an Enterprise is the amount of total capital that would enable it to survive the 

stress test in whichever scenario (up-rate or down-rate) is more adverse for that Enterprise.

The economic conditions of the stress test are driven by interest rate changes combined with 

adverse house price conditions. The interest rate scenarios, one in which 10-year Treasury yields 

rise 75 percent (up-rate scenario) and another in which they fall 50 percent (down-rate 

scenario), are statutorily prescribed. Changes in both scenarios are influenced by the existing 

interest rate environment as a starting point before the shock and cannot exceed 600 basis 

points. House price conditions are driven by a benchmark loss experience based on a historical 

analysis of newly originated 30-year fixed-rate single-family loans from the states of Arkansas, 

Louisiana, Mississippi, and Oklahoma during 1983 - 1984.

How Much Data are Required? 

The Enterprises provide OFHEO with quarterly data sufficient in nature to replicate the actual 

financial condition of each Enterprise. The data is sufficiently detailed to accurately project cash 

flows for assets, liabilities, and off-balance sheet obligations. Some of the data is provided in 

aggregate such as mortgage loans, where common risk characteristics exist. Other data is 

required specific to the instrument to accurately project its cash flows, as is the case for 

derivatives and debt instruments. The Enterprises provide data on over 282,000 instruments 

submitted in nearly 30 million separate data fields each quarter.
CHAPTER THREE - CAPITAL REGULATION

24

Box 3-1

Risk-Based Capital Implementation Achievements

During 2002, significant OFHEO resources were dedicated to implementation efforts 

surrounding the risk-based capital rule. Specifically, a task force focused on 

operational issues was formed in late 2001 with nine individuals directly assigned to 

identify issues, coordinate resources, and implement solutions. Numerous staff 

throughout the agency were directly tasked with implementing the solutions to the 

stress test implementation. Virtually 100% of the staffs in two divisions (Office of Risk 

Analysis and Model Development and Office of Information Technology) held riskbased capital implementation as a top priority. Among the major accomplishments 

achieved during the year are:

ß Issuing the first binding risk-based capital requirement as of September 30, 2002, one 

year after rule approval. Additionally, results of the stress test were released for the 

prior two non-enforceable quarters for the first and second quarter 2002 results 

providing additional transparency to the public.

ß Establishment of a Change Management Control process – Given the critical nature of 

synchronizing changes to the stress test code with the data base and data 

requirements, OFHEO dedicated additional resources to meet on a regular basis to 

provide a controlled environment to process, test, synchronize and communicate 

changes

ß Establishment of operating guidelines – Once the rule became final, OFHEO began 

the steps associated with establishing various operating guidelines to ensure tasks are 

carried out in an efficient and timely manner on a regular quarterly basis. Numerous 

guidelines were issued and are published on OFHEO’s web site. 

ß Changes to Rule – During implementation, OFHEO began the process of reviewing 

and enhancing the Rule to ensure it is dynamic and appropriately captures risk. Rule 

changes covering various correcting amendments were issued in April 2002, several 

technical amendments were issued in November 2002, and at year-end 2002 an 

additional rule amendment covering several issues was pending approval. 

ß Incorporation of New Activities - New Activity notifications were also included with the 

first enforceable classification as of September 30, 2002. While these activities were 

previously treated on an interim basis, the permanent OFHEO treatment was 

implemented with the third quarter results. The treatments of these activities are 

posted on the OFHEO web site for public comment.

ß Availability of Code, User’s Guides, and RBC Report Instructions for public use 

through OFHEO web site – OFHEO provided a user-friendly version of the stress test 

code with complete user’s guides as of 1/31/2003. This version of code and 

instructions were applicable to the year-end 2002 data provided by the Enterprises.

ß Development of Stylized Data Set – In conjunction with the public release of the code, 

OFHEO developed a stylized data set representing a small GSE that the public could 

use to test the functionality of the stress test code.

ß Operational Implementation at GSEs – OFHEO worked closely with the Enterprises 

during 2002 to ensure they understood the rule, the Report Instructions, and the 

computer code.
CHAPTER THREE - CAPITAL REGULATION 

25

MINIMUM CAPITAL STANDARD - OVERVIEW

OFHEO’s ratio-based minimum capital standard measures capital as a percentage of total assets. 

This ratio-based standard is mandated in the 1992 Act.

Minimum capital represents an essential amount of capital needed to protect an Enterprise 

against broad categories of business risk. Minimum capital represents an absolute floor, related 

to the level of Enterprise assets and obligations, below which core capital should not dip. For 

purposes of minimum capital, an Enterprise is considered adequately capitalized if core capital 

— common stock; perpetual noncumulative preferred stock; paid in capital; and retained

earnings — equals or exceeds minimum capital. The minimum capital standard is 2.5 percent of 

assets plus 0.45 percent of adjusted off-balance-sheet obligations. 

The critical capital level is the amount of core capital below which an Enterprise must be 

classified as critically undercapitalized and generally must be placed in conservatorship. Critical 

capital levels are computed as one-half of the portion of minimum capital requirement

associated with on-balance-sheet assets plus five-ninths of the portion of the minimum capital 

requirement associated with off-balance-sheet obligations.

CLASSIFICATION PROCESS

Each quarter, OFHEO calculates a minimum capital requirement, which includes both a

“minimum” and a lower “critical” level, and a risk-based capital requirement for each Enterprise. 

As of September 30, 2002 the Enterprises were required to meet or exceed both the minimum 

and risk based capital requirement to be classified as “adequately capitalized.” 

An Enterprise that meets the minimum capital requirement, but does not meet the risk-based 

capital requirement would be classified as “undercapitalized.” An Enterprise that does not meet 

the minimum capital requirement would be classified as “significantly undercapitalized.” An 

Enterprise that holds less than the critical requirement would be classified as “critically

undercapitalized.” Failure to meet the requirements triggers a range of regulatory responses, 

depending upon the capital classification of the Enterprise.

Each quarter, OFHEO proposes a capital classification in writing to each Enterprise. Each 

Enterprise has the opportunity to review and comment on its proposed classification. After 

reviewing any comments from the Enterprise, OFHEO makes a final capital classification and 

releases the classification to the public.
CHAPTER THREE - CAPITAL REGULATION

26

RESULTS AND ANALYSIS OF CAPITAL ADEQUACY

Both Enterprises, through the period ending December 31, 2002, have met or exceeded the 

capital requirements and are adequately capitalized. 

The Enterprises’ successes in meeting the risk-based capital requirement reflects the effective 

interest rate risk management, the lower interest rate environment in 2002, and, to a lesser 

extent, on recent years’ house price appreciation. During 2002, interest rate risk exposure 

accounted for most of the Enterprises’ risk-based capital requirements. Although home price 

appreciation moderated in the fourth quarter 2002, past house price growth continued to 

support the overall credit quality of the Enterprise mortgage portfolios. The house price 

appreciation, combined with effective risk sharing arrangements, has limited the significance of 

mortgage credit losses in the stress test.

Results of Capital Adequacy (Box 3-2)

MINIMUM CAPITAL RESULTS

RISK-BASED CAPITAL RESULTS 

Freddie Mac

19.39 20.54 21.62 20.56 21.45 22.66 23.7919.52

0

5

10

15

20

25

30

35

1Q02 2Q02 3Q02 4Q02

$ in billions

Minimum Requirement Core Capital

Freddie Mac

4.92 4.74

23.10 24.22

-

5

10

15

20

25

30

35

3Q02 4Q02

$ in billions

RBC Requirement RBC Total Capital

Fannie Mae

21.44

17.43

27.28 28.87

0

5

10

15

20

25

30

35

3Q02 4Q02

$ in billions

RBC Requirement RBC Total Capital

Fannie Mae

24.57 25.23 25.76 27.20 25.50 26.38 26.48 28.08

0

5

10

15

20

25

30

35

1Q02 2Q02 3Q02 4Q02

$ in billions

Minimum Requirement Core Capital
CHAPTER THREE - CAPITAL REGULATION 

27

ONGOING ENHANCEMENTS

OFHEO is committed to ensuring the risk-based capital stress test and its capital oversight

processes remain dynamic. The risk-based capital rule will continue to evolve in order to 

accommodate market innovations as well as developments in risk-measurement techniques. 

Treatments for new activities will be incorporated and disclosed to the public at the time 

OFHEO determines appropriate permanent treatment. OFHEO will also continue to pursue 

specific research projects and consider alternative or supplementary ways of assessing

Enterprise risk as more is understood about the potential for these tools to improve OFHEO’s 

supervisory capacity. More sensitivity analysis “what if” scenarios, close scrutiny of the 

Enterprises’ own assessment of their risks, and a consideration of the relative probability of 

capital impairment under particular circumstances beyond those specified in the rule, are all 

subject areas to be pursued. Likewise, OFHEO will continue to make its risk-based capital 

stress test available to the public for replication purposes, thus encouraging feedback and 

refinement to the process.
CHAPTER FOUR - OFHEO’S EXAMINATION PROGRAM

28

CAPITAL ADEQUACY (BOX 3-3)

 

Enterprise Risk-Based Capital Requirement 

(Billions of Dollars) (2)

Fannie Mae Freddie Mac

31-Dec-02 30-Sep-02 31-Dec-02 (1 ) 30-Sep-02

High Low High Low High Low High Low

Interest Rate Scenario 17.434 14.637 18.887 21.440 4.743 3.753 4.919 0.732

Total Capital 28.871 27.278 24.222 23.101

Surplus (Deficit) 11.437 5.838 19.479 18.182

Fannie Mae Minimum Capital Requirement 

(Billions of Dollars) (2)

31-Dec-02 30-Sep-02 30-Jun-02 31-Mar-02

Minimum Capital Requirement 27.203 25.756 25.227 24.571

Core Capital 28.079 26.484 26.382 25.500

Surplus (Deficit) 0.877 0.729 1.155 .929

Freddie Mac Minimum Capital Requirement 

(Billions of Dollars) (2)

31-Dec-02 30-Sep-02 30-Jun-02 31-Mar-02

Minimum Capital Requirement 21.620 20.538 19.520 19.390

Core Capital 23.792 22.656 21.445 20.558

Surplus (Deficit) 2.172 2.118 1.925 1.169

Fannie Mae Critical Capital Requirement

(Billions of Dollars) (2)

31-Dec-02 30-Sep-02 30-Jun-02 31-Mar-02

Critical Capital Level 13.880 13.145 12.867 12.529

Core Capital 28.079 26.484 26.382 25.500

Surplus (Deficit) 14.199 13.339 13.515 12.971

Freddie Mac Critical Capital Requirement

(Billions of Dollars) (2)

31-Dec-02 30-Sep-02 30-Jun-02 31-Mar-02

Critical Capital Level 11.009 10.463 9.950 9.874

Core Capital 23.792 22.656 21.445 20.558

Surplus (Deficit) 12.783 12.193 11.495 10.684

(1) Freddie Mac’s 12/31/2002 capital numbers are based on financial statements, which are currently undergoing an audit. 

These numbers are subject to change.

(2) Numbers may not add due to rounding
CHAPTER FOUR - OFHEO’S EXAMINATION PROGRAM 

29

CHAPTER FOUR: OFHEO’S EXAMINATION PROGRAM

INTRODUCTION

OFHEO’s annual risk-based examination program is an integral part of a system designed to 

ensure the ongoing safety and soundness of Fannie Mae and Freddie Mac. The examination 

program assesses the appropriateness and effectiveness of the Enterprises’ policies and processes 

for risk management, and assesses the companies’ financial performance. Using a risk-based 

approach allows OFHEO to recognize the unique operations of each Enterprise while applying 

uniform safety and soundness standards throughout the year. This aspect of the examination 

program’s design ensures that OFHEO is responsive to changes at the Enterprises while not 

imposing unnecessary burdens. The analysis and testing conducted during the examinations 

add further depth and perspective to OFHEO’s oversight of Fannie Mae and Freddie Mac. The 

examination program, together with OFHEO’s capital adequacy framework, informs the 

Director’s judgment about the appropriateness of the balance of risk and capital at each 

Enterprise.

The 2002 examinations found both Enterprises to be financially sound and well-managed.

The process OFHEO employed in its comprehensive annual risk-based examinations to reach 

these conclusions is briefly described below. This information is provided to give context for 

the summary of the examination results and conclusions for each Enterprise. 

OFHEO’s Examination Program

Risk Profiles 

Through a wealth of resources (including OFHEO knowledge, external sources and proprietary 

Enterprise information and data), the examination process begins by assessing the quantity of 

risk and quality of risk management at each Enterprise. OFHEO reviews each Enterprise’s risk 

profile at least quarterly, and revises its views if, for example, the Enterprise has planned or 

undertaken substantive new business initiatives, or if the Enterprise has substantially changed 

its level of risk or the manner in which it manages risks. 

Examination Strategies 

Based upon OFHEO’s unique position to understand the Enterprises’ risk profiles, in the next 

step of the examination process OFHEO develops detailed examination strategies to provide 

effective, efficient oversight of each Enterprise. The annual written examination strategies are 

dynamic and represent a blueprint of the examination work to be conducted in the coming year. 

The examination strategies are reviewed and updated quarterly based on Enterprise, industry 

and economic developments. In conjunction with the strategies, OFHEO creates work plans 

that describe how the strategies will be achieved. The work plans outline the scope, timing, and 

resources needed to meet the objectives and examination activities set forth in the strategies. 
CHAPTER FOUR - OFHEO’S EXAMINATION PROGRAM

30

Program Areas for Risk-Based Examinations and Categories of Risk and Risk Management 

Once OFHEO has strategies and work plans in place, examiners implement the strategies by 

completing exam work in each of the program areas for risk-based examinations. These are the 

program areas that capture the areas of risk and risk management being assessed at the 

Enterprises, with each program area focusing on specific sources of risk or risk management 

practices and tools. Later in this Chapter, OFHEO presents results and conclusions for both 

Fannie Mae and Freddie Mac.

In order to enhance examinations and maximize expertise, OFHEO has grouped the program 

areas by categories of risk and risk management, and aligned its examiner force expertise into 

teams that align with the categories of risk and risk management, and provide analytical 

expertise and financial monitoring.

The examination program areas, grouped by category, are:

CREDIT

ÿ Credit Risk Program - the risk that borrowers and counterparties will fail to meet their 

contractual or other obligations to the Enterprise.

MARKET

ÿ Interest Rate Risk Program – the risk from movements in interest rates, including changes 

in: the level of interest rates; the shape of the yield curve; the level of volatility; and the 

relationships or spreads among various yield curves or indices.

ÿ Liquidity Management Program - the risk that could arise from the Enterprise’s inability to 

efficiently meet its obligations as they come due and to transact the next incremental dollar 

of business cost effectively.

MODELLING

ÿ Model Exposure Program – the exposure that arises when using computer models and 

quantitative techniques to select, price and manage risks. 

OPERATIONS

ÿ Information Technology Program- the infrastructure, or the general controls, needed to 

safeguard data, protect computer application programs, prevent system software from 

unauthorized access, and ensure continued computer operations in case of unexpected 

interruptions.

ÿ Business Process Controls Program– assesses the process employed to ensure business 

initiatives and endeavors are considered and evaluated within a complete business context 

with particular attention directed to risk assessment and risk management framework.

ÿ Internal Controls Program - the plan of organization, methods and procedures adopted by 

management to ensure that: goals and objectives are met; resource use is consistent with 

laws, regulations and policies; resources are safeguarded against waste, loss and misuse; and 

reliable data are obtained, maintained and fairly disclosed in reports.
CHAPTER FOUR - OFHEO’S EXAMINATION PROGRAM 

31

CORPORATE GOVERNANCE

ÿ Audit Program - the risk that the Board or management’s reliance on internal or external 

audits is misplaced.

ÿ Management Information Program– the risk that management will make decisions based 

on ineffective, inaccurate or incomplete information or reports.

ÿ Management Processes Program - the processes used to drive behaviors to support the 

Enterprise’s defined corporate goals, standards and risk tolerances.

ÿ Board Governance Program- the manner in which the Board discharges its duties and 

responsibilities.

ÿ Financial Reporting – the policies, procedures and practices used for financial recordation 

and reporting.

Evaluation Criteria, Assessment Factors and Examination Objectives 

OFHEO conducts examination work in each of the program areas by using evaluation criteria, 

assessment factors and examination objectives. The examination objectives are broad in scope, 

the assessment factors are more narrowly focused and the evaluative criteria are narrower still. 

The approximately 800 evaluation criteria in the examination program detail both qualitative 

and quantitative items that examiners consider when making decisions about the assessment 

factors. The evaluation criteria are designed to assist the examiners and to ensure that the 

examination work is consistent at both Enterprises by creating transparency and understanding 

of the framework within which examiners make judgments. 

Examiners use the information and data from the evaluation criteria to form their expert 

opinions about the almost 100 assessment factors which in turn link directly to one or more of 

the examination objectives for each of the program areas. Sources for the assessment factors 

included industry standards and benchmarks, leading practices and examiner expertise. 

For each program area there are four or five examination objectives. These are the broad 

statements of what OFHEO’s examiners will achieve through their work in each of the 

examination program areas. In order to make a determination on an examination objective, 

OFHEO’s examiners are required to opine on each of the supporting assessment factors. By 

using the evaluation criteria to reach judgments about the approximately 100 assessment 

factors, OFHEO achieves its examination objectives, and reaches the examination results and 

conclusions that are reported in this chapter. 

Communicate Examination Findings 

Throughout the course of conducting examinations, OFHEO communicates with Enterprise 

personnel not only to gather information, but also to share findings and discuss observations 

and opportunities for enhancement. OFHEO is committed to continuous, effective

communication with the Enterprises. OFHEO has the same goal for all communications -- the 

free flow of information furthers the objective of ensuring the safe and sound operations of the 

Enterprises. Communications are tailored to the individual structure and dynamics of the 
CHAPTER FOUR - OFHEO’S EXAMINATION PROGRAM

32

Enterprise, and the timing of the communication depends on the situation being addressed. 

OFHEO keeps executive management and the Board appropriately informed and communicates 

directly with them as often as required by the Enterprise’s condition and the findings from 

examination activities. OFHEO brings those issues that introduce an exposure to the stable 

operation of the Enterprise, otherwise fall under the normal duties and responsibilities of the 

Board, or warrant the Board’s attention to the immediate attention of the Board and executive 

management. Technical issues and matters relating to a single line of business or activity are 

generally brought to the attention of operating managers with the Board and executive

management kept appropriately informed.

Throughout the 2002 annual examination cycle, OFHEO’s examiners had ongoing dialogues 

with the operating management at both Enterprises about the operations and processes covered 

by each of the examination program areas. In these discussions, the examiners shared their 

views about discrete opportunities the companies had to strengthen their operations and

processes, including initiatives that if implemented, would enhance existing tools and processes 

and minimize the resulting exposure to financial risk. The goal of ensuring that the Enterprises’ 

operations meet or exceed financial safety and soundness standards at any given point in time is 

supported by this iterative process and netted results that found both companies to be wellmanaged and financially sound. 

Effect Changes and Follow Up 

A primary goal of the examination process is to influence positive changes at the Enterprises to 

enhance their financial safety and soundness. The intensity of the influence exerted by OFHEO 

relates directly to the risk presented by an issue. If, for example, in the course of an examination 

OFHEO identifies a significant issue in risk management systems or an undesirable risk level, 

OFHEO will require management to develop and execute a corrective action plan, and will 

ensure that the Board holds management accountable for executing the action plan. OFHEO 

will review the action plan to ensure that it identifies the steps or methods required to cure the 

root causes of significant deficiencies, and to determine whether the plan is likely to resolve the 

significant issues within an appropriate time frame. As part of follow up, OFHEO will verify 

that the action plan has been executed and evaluate its success. 

OFHEO will consider the responsiveness of the Enterprise in recognizing the issue and

formulating an effective solution when determining if OFHEO needs to take incremental action. 

If an Enterprise is unresponsive or unable to effect the resolution of meaningful issues, OFHEO 

will take more formal steps to ensure deficiencies are corrected.
CHAPTER FOUR - OFHEO’S EXAMINATION PROGRAM 

33

FANNIE MAE AND FREDDIE MAC EXAMINATION RESULTS AND 

CONCLUSIONS

Introduction

In accordance with our examination program, the results and conclusions for the examination 

activities are reported in relation to safety and soundness standards. Throughout the annual 

examination cycle, January through December 2002, OFHEO’s examiners had ongoing dialogues 

with operating management at Fannie Mae and Freddie Mac about each company’s operations 

and processes in the areas covered by Credit Risk, Market Risk, Model Exposure, Operational 

Risk and Corporate Governance. In these discussions, the examiners shared their views about 

discrete opportunities the company had to strengthen its operations and processes, including 

initiatives that if implemented, would enhance existing tools and processes and minimize the 

resulting exposure to financial risk. The goal of ensuring that the Enterprises’ operations meet 

or exceed financial safety and soundness standards at any given point in time is supported by 

this iterative examination process. 

No matters identified in our 2002 examination work required the direct involvement of the 

Board of Directors for their remediation. At both Enterprises operating management was 

responsive and effective in addressing issues raised for their attention and action. 

The results and conclusions which are reported below reflect the examination work conducted 

from January through December 2002.

Fannie Mae Examination Results and Conclusions

Fannie Mae’s credit risk management and credit risk management framework are effective. The 

portfolio is diversified and the profile of credit risk is in compliance with the internally

prescribed limits. Policies, procedures, internal controls and management reporting for the 

credit function are effective. Fannie Mae is appropriately compensated for the credit risk it 

assumes. Management prudently manages counterparty exposure. New products and

initiatives are well researched prior to implementation. The credit risk sharing strategies are 

effective, as are the tools used to select, price and manage credit risk. Fannie Mae effectively 

identifies, quantifies and tracks its credit risk exposures. Management has an effective means 

for tracking and following up on credit related issues. The technology and controls supporting 

the credit risk management function are effective and being further enhanced. Management 

effectively identifies and reconciles differences between actual and expected credit portfolio 

performance.

Fannie Mae’s management of interest rate risk was effective. During 2002, Fannie Mae’s

strategies and practices were ultimately effective in responding to the financial impacts

associated with a volatile rate environment that resulted in sharp increases in mortgage

prepayment speeds. In the second-half of 2002, Fannie Mae’s duration gap widened

significantly, which if not corrected, would have posed a safety and soundness concern. 

However, management effectively executed a plan that rebalanced the portfolio’s sensitivity 

position. Examiners and Fannie Mae representatives were in close communication while the 
CHAPTER FOUR - OFHEO’S EXAMINATION PROGRAM

34

sensitivity position was outside the company’s targeted operating range. Examiners focused on 

management’s compliance with its prescribed policies, the quality of management’s action plans 

and the effectiveness of management’s actions. 

Management has a meaningful methodology for quantifying and monitoring the level and nature 

of interest rate risk. Fannie Mae’s management effectively follows up on issues related to 

interest rate risk. Fannie Mae appropriately researches and controls the extent to which new 

products and initiatives may impact the interest rate risk profile. The technology and controls 

supporting the interest rate risk management function are effective. The tools used to model 

interest rate risk, and the strategies to alter the exposures to interest rates are effective. 

Management effectively incorporates tactical and strategic issues into the management of

interest rate risk. The responsibilities for strategy and analytics functions are appropriately 

separated from those for the execution functions. Derivative instruments are used prudently 

and in accordance with the standards used by other large financial intermediaries. 

Fannie Mae’s liquidity management is effective, and the company’s liquidity access was stable 

throughout 2002. The policies, procedures, internal controls and management reporting

relating to liquidity management are effective. Management has an effective methodology for 

quantifying and monitoring liquidity, and management appropriately evaluates the impact of 

events and alternative environments when developing contingency plans. The planning process 

for liquidity management is effective. Fannie Mae appropriately considers the impact new 

products and initiatives may have on liquidity. Management effectively follows up on issues and 

initiatives that influence liquidity. Technology and controls for liquidity management are 

effective. The quality of tools Fannie Mae uses to manage and monitor liquidity, and the quality 

of tools used to perform scenario analyses are effective. An appropriate separation of duties 

exists between the strategy and analytics functions and the execution function. Fannie Mae 

effectively analyzes and is well positioned to respond to trends and anomalies in funding 

spreads. Liquidity management is appropriately integrated with other management and

financial performance issues.

The information technology infrastructure and its surrounding risk management framework is 

effective. Operating processes are in place to ensure secure, effective and efficient data center 

processing and problem management. There are effective policies and processes in place to 

ensure that data, information and computing resources are secure and accessed only by

authorized users. There are effective policies and processes in place to ensure the timely and 

appropriate resumption of business in the event of a disaster. Management has processes in 

place that ensure information technology plans effectively address business unit and corporate 

objectives. Effective processes are in place to ensure appropriate controls are implemented. 

Documentation for system development and maintenance is complete. Fannie Mae has

implemented effective processes to ensure data and information are processed accurately and in 

a timely manner. Effective controls are in place to secure networks and/or firewalls from 

unauthorized or inappropriate actions. Fannie Mae has effective controls over end-user 

computing.

Fannie Mae’s internal control framework and the management of that framework are effective. 

Management has an accurate and reliable process for identifying risks to business processes and 

implementing appropriate controls. Implemented controls properly address risks assessed by 
CHAPTER FOUR - OFHEO’S EXAMINATION PROGRAM 

35

management. Management has a reliable process for ensuring the timely resolution of control 

related issues. Internal Audit appropriately identifies and communicates control deficiencies to 

management and the Board of Directors. There are established policies and procedures that 

delineate internal control process and standards for the control environment. Management 

effectively ensures compliance with established internal controls.

The processes and control environment used when Fannie Mae considers and/or develops new 

or substantially revised business initiatives are effective. The use of pilot programs and the 

communication flows surrounding new or substantially revised business initiatives are effective. 

The balance between risk management, internal controls and the pressure to develop new or 

substantially revised business initiatives is appropriate. The corporation’s operating culture 

fosters the introduction of new ideas and innovation. Both the analysis and review conducted 

for potential new or substantially revised business initiatives, and the analysis conducted after a 

new or substantially revised business initiative is launched, are effective. 

The audit functions are independent and effective and adhere with the standards that are 

evolving. The Internal and External Audit functions have the appropriate independence. 

Auditors performing the work possess appropriate professional proficiency. The scope of

internal audit work performed is appropriate, and the internal audit work is complete. The 

management of the Internal Audit department is effective. The Board of Directors are

appropriately involved with and follow up on identified audit issues. The auditor’s risk

assessment process is effective. Internal Audit is appropriately involved in new products and 

new initiatives. 

The Board of Directors discharges its duties and responsibilities effectively and in accordance 

with the leading practices that are evolving. The Board is appropriately engaged in the 

development of a strategic direction for the company, and the Board ensures that management 

appropriately defines the operating parameters and risk tolerances of the Enterprise in a manner 

consistent with the strategic direction; legal standards; and ethical standards. The Board has an 

effective process for hiring and maintaining a quality executive management team, and the Board 

effectively holds the executive management team accountable for achieving the defined goals 

and objectives. The Board is appropriately informed of the condition, activities and operations 

of the Enterprise, and has sufficient, well-organized time and the necessary resources to carry 

out its duties and responsibilities.

The framework used to produce timely, accurate and reliable reports is effective. Management 

and the Board of Directors receive necessary reports on Fannie Mae’s performance relative to 

established goals and objectives. Management reporting permits management to gauge the 

quality of their decisions. Information systems are linked to Fannie Mae’s overall strategy, and 

are developed and refined pursuant to a strategic plan. The reports management uses for 

decision making are accurate. Enterprise strategy, roles and responsibility are effectively

communicated. Employees have effective channels of communication to provide feedback, 

report suspected improprieties and suggest enhancements. Communications across the

company are effective.

Key management processes that influence company-wide talent and behaviors are effective. The 

strategic planning process is comprehensive. Business unit goals, implementation plans and 
CHAPTER FOUR - OFHEO’S EXAMINATION PROGRAM

36

programs designed to achieve the corporate plan are effective. Management is able to monitor 

and manage change. Key performance measures are appropriate, effective and align with

strategy. The behavior management programs are effectively designed to achieve corporate goals 

and objectives. Fannie Mae has effective programs for career and management development, and 

for recruiting competent people. Fannie Mae’s proprietary risk management programs and 

systems are effective. Management effectively conveys an appropriate message of integrity and 

ethical values. Management’s philosophy and operating style have a pervasive effect on the 

company. The organizational structure and the assignment of responsibility provide for

accountability and controls. 

Freddie Mac Examination Results and Conclusions

Freddie Mac’s credit risk management and credit risk management framework are effective. The 

portfolio is diversified and the credit risk profile is in compliance with the internally prescribed 

limits. Policies, procedures, internal controls and management reporting for the credit function 

are effective. Freddie Mac is adequately compensated for the credit risk it assumes and its credit 

risk models produce reliable results. Management prudently manages counterparty exposure. 

New products and initiatives are well-researched prior to implementation. The credit risk 

sharing strategies are effective, as are the tools used to select, price and manage credit risk. 

Freddie Mac effectively identifies, quantifies and tracks its credit risk exposures. Management 

has an effective means for following up on credit-related issues. The technology and controls 

supporting the credit risk management function are effective and being further enhanced. 

Management effectively identifies and reconciles differences between actual and expected credit 

portfolio performance.

Freddie Mac’s management of interest rate risk was effective. During 2002, Freddie Mac’s

hedging strategies and practices were effective in minimizing the financial impacts associated 

with a volatile rate environment that resulted in sharp increases in mortgage prepayment

speeds. The policies, procedures, internal controls and management reporting relating to

interest rate risk are effective. Management has a meaningful methodology for quantifying and 

monitoring the level and nature of interest rate risk. Freddie Mac’s management effectively 

follows up on issues related to interest rate risk. Freddie Mac appropriately researches and 

controls the extent to which new products and initiatives may impact the interest rate risk 

profile. The technology and controls supporting the interest rate risk management function are 

effective. The tools used to model interest rate risk and the strategies to alter the exposures to 

interest rates are effective. Management effectively incorporates tactical and strategic issues 

into the management of interest rate risk. The responsibilities for the strategy and the analytics 

functions are appropriately separated from those for the execution functions. Derivative 

instruments are used prudently and in accordance with the standards used by other large 

financial intermediaries. 

Freddie Mac’s liquidity management is effective, and the company’s liquidity access was stable 

throughout 2002. The policies, procedures, internal controls and management reporting

relating to liquidity management are effective . Management has an effective methodology for 

quantifying and monitoring liquidity, and management appropriately evaluates the impact of 

events and alternative environments when developing contingency plans. The planning process 

for liquidity management is effective. Freddie Mac appropriately considers the impact new 
CHAPTER FOUR - OFHEO’S EXAMINATION PROGRAM 

37

products and initiatives may have on liquidity. Management effectively follows up on issues and 

initiatives that influence liquidity. Technology and controls for liquidity management are 

effective. The quality of tools Freddie Mac uses to manage and monitor liquidity, and the quality 

of tools used to perform scenario analyses are effective. An appropriate separation of duties 

exists between the strategy and analytics functions and the execution function. Freddie Mac 

effectively analyzes and is well positioned to respond to trends and anomalies in funding 

spreads. Liquidity management is appropriately integrated with other management and with 

financial performance issues.

The information technology infrastructure and its surrounding risk management framework is 

effective. Operating processes are in place to ensure secure, effective and efficient data center 

processing and problem management. There are effective policies and processes in place to 

ensure that data, information and computing resources are secure and accessed only by

authorized users. There are effective policies and processes in place to ensure the timely and 

appropriate resumption of business in the event of a disaster. Management has processes in 

place to ensure information technology plans effectively address business unit and corporate 

objectives. Effective processes are in place to ensure appropriate controls are implemented. 

Documentation for system development and maintenance is complete. The controls over enduser computing are effective and there are controls that secure networks and firewalls from 

inappropriate or unauthorized actions. Freddie Mac has processes in place to ensure data and 

information are processed accurately and in a timely manner. 

The internal control framework and the management of that framework are effective. 

Management has an accurate and reliable process for identifying risks to business processes and 

implementing appropriate controls. Implemented controls properly address risks assessed by 

management. Management has a reliable process for ensuring the timely resolution of control 

related issues. Internal Audit appropriately identifies and communicates control deficiencies to 

management and the Board of Directors. There are established policies and procedures that 

delineate internal control process and standards for the control environment. Management 

effectively ensures compliance with established internal controls.

The process and control environment used when considering or developing new or substantially 

revised business initiatives is effective. The criteria Freddie Mac uses to subject a business 

initiative to review as new or substantially revised are appropriate. Pilot programs are

effectively used and the analysis and review conducted after the launch of a new or substantially 

revised business initiative is appropriate. The communications associated with new or

substantially revised business initiatives are effective. Freddie Mac appropriately balances risk 

management, internal controls and the pressure to deliver new or substantially revised business 

initiatives. Freddie Mac’s corporate culture fosters the introduction of new ideas and

innovation. 

The audit functions are independent and effective. The Internal and External Audit functions 

have the appropriate independence. Auditors performing the work possess appropriate

professional proficiency. The scope of audit work performed is appropriate, and the audit work 

is complete. The management of the Internal Audit department is effective. Executive

management and the Board of Directors are appropriately involved with and follow up on 
CHAPTER FOUR - OFHEO’S EXAMINATION PROGRAM

38

identified audit issues. The auditor’s risk assessment process is effective. Internal Audit is 

appropriately involved in new products and new initiatives. 

The Board of Directors discharges its duties and responsibilities effectively and in accordance 

with the leading practices that are evolving. The Board is appropriately engaged in the 

development of a strategic direction for the company and ensures that management

appropriately defines the operating parameters and risk tolerances of the Enterprise in a manner 

consistent with the strategic direction; legal standards; and ethical standards. The Board has an 

effective process for hiring and maintaining a quality executive management team, and has 

processes in place designed to hold the executive management team accountable for achieving 

the defined goals and objectives. The Board is appropriately informed of the condition, activities 

and operations of the Enterprise.

Management and the Board of Directors receive necessary reports on Freddie Mac’s performance 

relative to established goals and objectives. Internal reporting processes and reports provide the 

means to evaluate management’s decisions. Information systems are linked to Freddie Mac’s 

overall strategy, and are developed and refined pursuant to a strategic plan. There are effective 

communications across the company. Employees have effective channels of communication to 

provide feedback, report suspected improprieties and suggest enhancements. 

Examiners tracked the progress associated with the introduction of the new CPA firm in 2002. 

Subsequent to year-end 2002, Freddie Mac announced a delay in its certified 2002 financial 

statement and the reaudit of certain past financial statements. The delay in financial statements 

and the reaudit arise from specific accounting interpretations regarding the timing of income 

recognition. Freddie Mac agreed with its new external auditor that the previous accounting 

treatment, while agreed to by Freddie Mac’s previous auditor, was incorrect. OFHEO opined 

that a reaudit and delay in 2002’s statements is prudent and appropriate under the

circumstances. In addition, management and its Board of Directors initiated efforts in 2002 to 

enhance the expertise and controls in the areas of financial accounting and operational control. 

Examiners evaluated management’s and the Board’s actions and find these to be enhancements. 

We remain satisfied that the Board of Directors and executive management are taking the 

appropriate action.

Key management processes that influence corporate-wide behaviors are effective. The strategic 

planning process is comprehensive and dynamic. Business unit goals are effective and

implementation efforts reflect changing priorities. Management has the ability to monitor and 

manage change. Key performance measures are appropriate, effective and align with strategy. 

The behavior management programs are effectively designed to achieve corporate goals and 

objectives. Freddie Mac has programs for career and management development, and for

recruiting competent people. Freddie Mac’s proprietary risk management programs and 

systems are effective. Management effectively conveys an appropriate message of integrity and 

ethical values. Management’s philosophy and operating style have a pervasive effect on the 

company. The organizational structure and the assignment of responsibility provide for

accountability and controls.
 CHAPTER FIVE - FINANCING OFHEO’S OPERATIONS 

39

CHAPTER FIVE: FINANCING OFHEO’S OPERATIONS

OFHEO’S BUDGET

OFHEO’s operations are not financed by taxpayer funds. OFHEO’s annual operating budget is, 

however, subject to the Federal appropriations process and is based on the amount appropriated by 

Congress and signed into law by the President. The amounts provided for by the appropriations 

process are collected from Fannie Mae and Freddie Mac in the form of an annual

assessment paid semi-annually.

The President’s Budget for Fiscal Year 2004 continues to include a proposal to remove OFHEO from 

the appropriations process. OFHEO Director Armando Falcon has continuously stated that the 

lengthy appropriations process may not allow OFHEO the flexibility necessary to address evolving, 

dynamic issues before those issues impact the financial safety and soundness of the Enterprises or 

funding for the housing market. The Administration is seeking the authority for OFHEO to operate 

like all other financial safety and soundness regulators, such as the Office of the Comptroller of the 

Currency and the Office of Thrift Supervision. OFHEO’s operations would remain subject to the 

oversight of Congress, but its budget would be free from the unpredictability of the annual 

appropriations process.

For fiscal year 2002, OFHEO’s budgetary resources totaled $27,337,587. Budgetary resources 

represent $27 million appropriated to OFHEO for fiscal year 2002 plus recovery of prior year funds 

and reimbursable agreement earnings. OFHEO supported the Small Business Administration 

through an Economy Act agreement utilizing OFHEO’s financial modeling expertise. The fiscal year 

2002 operating budget supported the integration of the Risk-Based Capital regulation into a 

comprehensive program of risk-based oversight of the Enterprises. In addition to paying on-going 

salary and operating expenses, the 2002 budget also funded a new, large computer system 

supporting the risk-based oversight program and one-time leasehold improvements for space 

configuration and renovation. The office continued to conduct comprehensive annual risk-based 

examinations of Fannie Mae and Freddie Mac, reviewed and classified the capital adequacy of each 

Enterprise quarterly, and performed other safety and soundness related regulatory activities.

Five months into fiscal year 2003, OFHEO received its full budget request of $30,000,000. OFHEO 

will use these resources to strengthen examination and oversight activities by bolstering OFHEO’s 

capacity to oversee Enterprise risk management activities, by improving OFHEO’s capacity to 

analyze stress test outputs, and by improving OFHEO’s capacity to analyze developments in the 

mortgage and securities markets.

OFHEO’s fiscal year 2004 budget request totals $32,415,000. These resources will be used to 

continue strengthening examination and oversight activities. OFHEO will also enhance its analytic 

capability through creation of a prototype examiner workstation.
 CHAPTER FIVE - FINANCING OFHEO’S OPERATIONS 

40

OFHEO CONTINUES TO RECEIVE UNQUALIFIED AUDIT OPINION IN FY 

2002 

In conjunction with the government’s goal of improved accountability, OFHEO voluntarily prepared 

financial statements for fiscal year 2002 and subjected these statements and underlying processes to 

an independent audit. The certified public accounting firm of Dembo, Jones, Healy, Pennington and 

Marshall audited the statements. The firm issued an unqualified audit opinion on OFHEO’s fiscal 

year 2002 Financial Statements. The complete audit report follows.
OFFICE OF FEDERAL HOUSING 

 ENTERPRISE OVERSIGHT 

 

 FINANCIAL REPORT 

 September 30, 2002
Office of Federal Housing Enterprise Oversight 

Table of Contents 

Page

Management’s Discussion and Analysis 1 

Independent Auditors’ Opinion on the Financial Statements 11 

Report of Independent Auditors on Internal Control 13 

Report of Independent Auditors on Compliance with Laws and Regulations 15 

Financial Statements 

 Balance Sheets 17 

 Statements of Net Cost 18 

 Statements of Changes in Net Position 19 

 Statements of Budgetary Resources 20 

 Statements of Financing 21 

 Notes to Financial Statements 22 

 Required Supplementary Information 29 
OFFICE OF FEDERAL HOUSING ENTERPRISE OVERSIGHT 

FISCAL YEAR 2002 

MANAGEMENT’S DISCUSSION AND ANALYSIS

Mission Statement

OFHEO promotes housing and a strong economy by ensuring the safety and soundness of Fannie 

Mae and Freddie Mac and fostering the strength and vitality of the nation’s housing finance

system. 

Overview

The Office of Federal Housing Enterprise Oversight (OFHEO) was established by Title XIII of the 

Housing and Community Development Act of 1992, Public Law Number 102-550, known as the 

Federal Housing Enterprises Financial Safety and Soundness Act of 1992 (1992 Act). OFHEO is an

independent office within the Department of Housing and Urban Development (HUD) with 

responsibility for examining and regulating the Federal Home Loan Mortgage Corporation (Freddie 

Mac) and the Federal National Mortgage Association (Fannie Mae) (collectively, the Enterprises) and 

ensuring that they are adequately capitalized. 

A Director appointed by the President and confirmed by the Senate for a five-year term heads

OFHEO. In October 1999, Armando Falcon, Jr. was sworn in as OFHEO’s second Director. Under 

Director Falcon’s leadership, OFHEO effectively regulated the Enterprises in FY 2002. OFHEO

determined that the Enterprises were adequately capitalized and operating in a safe and sound manner.

In addition, OFHEO promoted an efficient secondary mortgage market through an independent and 

balanced approach in its oversight of the Enterprises. 

To ensure that the Enterprises are adequately capitalized, the 1992 Act required OFHEO to develop a 

stress test to determine risk-based capital requirements. The final Risk-Based Capital rule was 

published September 13, 2001. During the mandatory one-year phase-in period following publication

of the final rule, Director Falcon devoted considerable resources to the implementation of the RiskBased Capital Rule. Also, Director Falcon allocated significant resources to strengthening other riskbased oversight activities. 

OFHEO is also required by law to conduct on-site comprehensive examinations at Fannie Mae and

Freddie Mac to determine the overall safety and soundness of the two companies. The examinations

are designed to identify the risks in the business activities of the Enterprises, and to determine if those

risks are being prudently managed, controlled, and monitored. Director Falcon has maintained focus

on OFHEO’s examination and oversight function and plans to increase the number of examiners and 

automated resources in this area over a four-year period beginning in FY 2003. These additional 

resources are required to keep pace with the tremendous growth in the size and complexity of the 

Enterprises’ operations, and to provide needed depth in the examination of the Enterprises’ core

credit, market and interest rate risk areas. The additional resources would also provide capacity to

expand the scope and depth of the examination program to include new and emerging activities

including accounting practices, risk management methods, operational risk and Risk-Based Capital 

compliance. 

Since OFHEO began operations in 1993, the Enterprises have more than doubled in size and 

fundamentally shifted their business mix from guarantors of mortgage-backed securities to asset

managers. In response to more ambitious affordable housing goals and the shift in business strategy, 

the Enterprises have also expanded business products and structured programs to purchase high loanto-value mortgages to support the drive to higher rates of homeownership, to promote the expansion 

 1
of reverse mortgages for elderly homeowners, and to develop the means to reach less credit worthy 

borrowers. To fund their expanded portfolios, the Enterprises issued innovative debt instruments, 

including instruments denominated in foreign currencies and established a program of regular 

issuances that frequently viewed as an alternative to U.S. Treasury securities. The Enterprises have

also increased their use of derivative instruments from a notional amount of $72 billion at year-end

1993 to $1.3 trillion on September 30, 2002, representing a more than seventeen-fold increase. Each

of these initiatives represents a heightening of the sophistication and complexity embedded in the risk

profiles of Fannie Mae and Freddie Mac. 

At the same time, dramatic advances in technology represent the foundation for the Enterprises new 

business initiatives. The Enterprises employ cutting edge risk management techniques, built on

quantitative models, to manage the many alterations of their risk profiles. Automated underwriting

and related technology innovations by Fannie Mae and Freddie Mac have revolutionized the mortgage

finance process and have led to significant shifts in the structure of the mortgage finance industry.

These technologies carry with them operational challenges that not only permit the Enterprises to

leverage their resources but also heighten their operational risks. These developments and trends have

challenged the resources of OFHEO in its oversight role. 

It is imperative that OFHEO continue to have the capability to assess the consequences of further 

growth and innovation by Fannie Mae and Freddie Mac. In order to do so, OFHEO must be able to

add resources and shift existing resources contemporaneously with business developments impacting

the Enterprises. OFHEO also must share a commitment to technology that will permit the Office to

leverage the expertise and skills of its staff. Consequently, the Director’s multi-year budget strategy

includes the enhancement of OFHEO’s computing capacity in FY 2002, followed by integration of

commercial automated analytic tools into OFHEO’s regulatory and oversight systems in FY 2003 and

phased expansion of human capital over 2003 through 2006. 

HUMAN CAPITAL AND FLEXIBILITY KEY TO SOUND MANAGEMENT 

OFHEO is located at 1700 G Street NW in the District of Columbia. The Director and Deputy

Director carry out OFHEO’s mission through the coordinated efforts of eight offices. These offices

are: (1) General Counsel, (2) Risk Analysis and Model Development, (3) Policy Analysis and 

Research, (4) Information Technology, (5) External Relations, (6) Examination and Oversight, (7) 

Finance and Administration, and (8) Strategic Planning and Management. 

 2

Director

Deputy Director

Associate Director for

External Relations

General Counsel

Associate Director for

Risk Analysis & Model

Development

Associate Director for

Examination and Oversight

(Chief Examiner)

Associate Director for

Policy Analysis and

Research

(Chief Economist)

Associate Director for

Finance & Administration

Associate Director for

Information Technology

(Chief Information

Officer)

Associate Director for

Strategic Planning

and Management
During FY 2002, OFHEO implemented the Risk-Based Capital Rule and conducted examination and

oversight of the Enterprises by employing about 112 full time equivalent (FTE) workyears, up from

105 FTE in FY 2001. The nature of OFHEO’s mission requires a highly skilled, motivated, and 

diverse workforce to provide institutional capacity in mission-critical areas at all times. The

Director’s long-term strategy would continue to increase staffing through FY 2006 and strengthen

OFHEO’s capacity to perform oversight of the evolving risk profiles of the Enterprises. 

OFHEO Strenghtening Oversight Capacity Through Added

 Human Capital

0

100

200

FTE

Actual FTE 87 105 112

Planned FTE 135 151

FY 2000 FY 2001 FY 2002 FY 2003 FY 2004

OFHEO IS NOT FINANCED BY TAXES 

While OFHEO’s budget is currently subject to the annual congressional appropriations process, it is 

not funded by tax dollars. Fannie Mae and Freddie Mac bear the full cost of OFHEO’s operations

through an annual assessment based on OFHEO’s annual operating budget as appropriated. Each

Enterprise pays a pro rata share of the annual assessment. The combined assets and off-balance sheet 

obligations of each Enterprise determine the pro rata shares. OFHEO receives the annual assessment

in semi-annual payments each fiscal year. By statute these payments are due to OFHEO October 1, 

and April 1, of each fiscal year, excluding years when the Enterprises must also pay based on 

temporary funding resolutions. 

OFHEO NEEDS INCREASED BUDGET FLEXIBILITY 

The President’s FY 2003 and 2004 budgets contain an administrative provision that would provide

direct funding to OFHEO eliminating the appropriations requirement. Without passage of this 

provision, OFHEO, unlike other federal financial regulators, must submit a request for an annual

operating budget to the Office of Management and Budget (OMB) and the Congress. This process 

diminishes the efficiency and effectiveness of OFHEO’s programs by requiring the Office to predict

in advance the resources that it may need to respond to external events that will not arise for over two 

years. OFHEO is subject to OMB review of its budget proposal and must adopt OMB budget policy 

in making a budget request of the Congress. This may involve OFHEO seeking fewer resources than

it proposed to OMB. 

In addition, OFHEO has no operating funds for a fiscal year until appropriation legislation is enacted

by Congress and signed by the President. OFHEO’s budget is bundled with the Department of

Veterans Affairs (VA), HUD, and a variety of independent agencies such as the National Science

Foundation. When the Congress and the Administration are unable to reach timely budget

agreements, it results in OFHEO’s not having an enacted budget until after the fiscal year has

commenced. Due to budget uncertainty in FY 2003, OFHEO slowed hiring during the fourth quarter 

of 2002 and in 2003. When the 2003 fiscal year began on October 1, 2002, OFHEO’s budget had not 

 3
received Congressional approval. Consequently, OFHEO had to operate under Continuing 

Resolutions at the FY 2002 level, $3 million less than the pending FY 2003 budget. Four months into

the year, OFHEO was still subject to restricted funding under the Continuing Resolutions. The

appropriations process forces OFHEO to trim operations until large, unrelated budget issues are 

resolved between the executive and legislative branches. 

Director Falcon has repeatedly voiced concern about the potential impacts of OFHEO’s current 

funding strategy and has asked both OMB and Congress to remove OFHEO from the appropriations 

process. He is concerned that the appropriations process constrains OFHEO’s ability to respond

appropriately to new unanticipated developments that could impair the financial safety and soundness

of the Enterprises and prohibit the Enterprises from performing their important public missions. 

Removal from the appropriations process would put OFHEO on par with bank and thrift regulatory 

agencies and would allow the office to operate more efficiently and effectively. Congress and OMB 

would still exercise vigorous oversight of OFHEO activities. 

KEY FINANCIAL INFORMATION 

In FY 2002, Congress appropriated OFHEO $27 million for salaries and operating expenses. Due to

reimbursable agreements and recovery of prior year obligations, OFHEO had $27,337,587 available 

for obligation during FY 2002. Obligations represent monies awarded to specific contractors, payroll 

costs, and other expenses such as equipment purchases and employee travel costs for the fiscal year. 

All but $1,142 was obligated for the year ended September 30, 2002. As required by law, the $1,142

has been credited against the FY 2003 assessment payments paid by the Enterprises.

Of the $27.3 million obligated during FY 2002, 68.4% or $18.7 million, were obligated for purchases 

that directly support mission activities such as examination and oversight, capital adequacy, and 

financial research related to housing finance. Mission related funding increased 4.4% from FY 2001

to FY 2002. The balance of funds were obligated for activities supporting the accomplishment of the 

mission such as rent, internal financial and administrative management, external relations to the 

Congress and the public, and non-mission legal support.

Distribution of FY 2002 Resources

Across Programs

Legal

5%

Research

6%

All Other

32%

Exam

16%

Capital

13%

Technology

28%

OFHEO achieved two milestones when the Risk-Based Capital Rule was published on September 13,

2001 and when it became enforceable on September 13, 2002. OFHEO is evolving to meet the

demands of fully integrating risk-based capital into a comprehensive program of risk-based oversight 

of the Enterprises. This evolution contributed to the increase in the net cost of OFHEO’s operations.

Net cost represents assessment collections, from Fannie Mae and Freddie Mac, that have been

 4
expensed for salaries and operating expenses, including retirement benefits financed by the Office of

Personnel Management. The net cost of operations for FY 2002 was over $22 million, up 12.1% from

$19.9 million in FY 2001. 

Net Cost Increased 12.1% During FY 2002

 FY 2001

$19,886,191 

 FY 2002

$22,286,028 

$0

$5,000,000

$10,000,000

$15,000,000

$20,000,000

$25,000,000

 Net Cost

$2.4 increase

 from FY 2001

The nearly $2.4 million increase in net cost is primarily associated with higher staffing levels. Of the 

total increase in net cost, 70.3% is in salary and benefits attributable to filling vacancies to support

examination, capital, information technology (IT) and legal programs. The jump in rent represents an

increase in leased space to house additional staff and an increase in leased space to house the new 

large-scale service and tape back-up storage facility that supports OFHEO’s technology requirements.

Increase in rent costs account for 23.5% of the change in net cost. OFHEO also undertook substantial

capital leasehold improvements to house the growing staff and the new, large computer system. These

capital improvements and the new, large computer comprise the $4.7 million increase in furniture,

fixtures and equipment. These are one-time costs and this category will decrease in FY 2003. The 

$4.7 million increase in cost in furniture, fixtures and equipment is offset by a reduction of $4.6

million in contract services. The decrease in contract costs resulted from the substitution of cheaper 

OFHEO staff for more expensive contracting services in key program areas and in the completion of

contract services linked to the Risk-Based Capital model development. Contract costs will expand

and contract annually based on planned performance goals and emerging developments at the 

enterprises. Miscellaneous costs (travel, printing, supplies, etc.) increased by only 3.3% in FY 2002. 

Net Cost Increases $2.4 Million for FY 2002

Salaries &

Benefits

Rent Services Other Furniture,

Fixtures &

Equipment

($5,000,000)

($2,500,000)

$0

$2,500,000

$5,000,000

FINANCIAL MANAGEMENT ACHIEVEMENTS AND IMPROVEMENTS

Financial Statement Audit. OFHEO has received unqualified audit opinions for the last four years on 

it’s financial statements, internal controls and compliance with laws and regulations. 

 5
Federal Managers’ Financial Integrity Act (FMFIA). In letters dated December 16, 2002, Director

Falcon advised the President and the Congress that OFHEO was in compliance with FMFIA as of the

end of FY 2002 (September 30, 2002). During FY 2002, OFHEO’s managers continued to monitor 

internal controls and reported on the effectiveness of controls to the Director. No reportable material

weaknesses were identified. 

 

Compliance with Prompt Payment Act. The Prompt Payment Act requires Federal agencies to make 

timely payments to vendors and improve the cash management practices of the government by taking

discounts when they are justified. This means that OFHEO must pay its bills within a narrow window 

of time – not too early and not late. 

In FY 2002, OFHEO maintained respectable performance for prompt payment of bills. During FY 

2002, OFHEO’s invoices, subject to prompt payment, increased by 25% over FY 2001, from nearly

$6.6 million to $8.2 million. While the amount of interest penalties rose in FY 2002 to $2,188.09 

from $445 paid in FY 2001, the percentage of invoices paid late was only 4.2%. This compares 

favorably to performance reported by the Department of Treasury for FY 2002 of 4.53%. 

The increase in prompt payment interest is attributable to delays in credit card processing and in

processing a couple of large contract invoices. OFHEO has reviewed the circumstances associated

with the increase in prompt payment interest and has taken corrective action. In FY 2002, OFHEO 

identified the need to hire an additional administrative support employee to assume some duties that

were competing with review of invoices. When the new employee is hired, during FY 2003, OFHEO 

will realign among staff specific functions to ensure that adequate resources are available for prompt

invoice processing. 

Federal Financial Management Information Act (FFMIA) of 1996

The FFMIA codified in law certain financial management system requirements that were already in 

place by Executive Branch policies and added one new requirement. The Act established new

requirements for auditors to report on agency compliance with system requirements and for agency 

heads and agency management to correct deficiencies within a reasonable time period. 

OFHEO contracts certain administrative and financial services from other government agencies. 

Since OFHEO is small, these cross servicing arrangements with larger agencies provide a costeffective means for the use of systems, which are generally expensive to purchase and maintain.

OFHEO maintains its financial accounting on a system owned by VA. The National Finance Center

(NFC), operated by the Department of Agriculture, provides OFHEO with payroll systems and 

services. In April of 2002, OFHEO assumed the responsibility from HUD for personnel actions

processing and implemented a direct link between OFHEO and the NFC payroll/personnel system.

OFHEO established a quality assurance function over data entry into the system and strengthened

internal controls. 

OFHEO ACHIEVES KEY PERFORMANCE GOALS IN FY 2002 

OFHEO’s FY 2002 Annual Performance Plan was the first annual plan developed to carry out its FY 

2000-2005 Strategic Plan. OFHEO’s annual plan and its operations were designed to achieve the

Office’s four strategic objectives, described in the FY 2000-2005 Strategic Plan: 

1. Ensure the Enterprises are adequately capitalized. 

2. Ensure the Enterprises comply with safety and soundness standards and other legal requirements.

 6
3. Enhance public understanding of the nation’s housing finance system. 

4. Contribute to Federal efforts to promote efficient and effective financial markets and home 

ownership. 

Through the FY 2002 Annual Performance Plan, OFHEO set its performance goals for the year and 

outlined means and strategies to achieve them. Highlights of the goals and accomplishments that 

relate to each of these strategic objectives are described below. In accordance with the Government

Performance and Results Act, the FY 2002 Annual Performance Report will contain a more detailed 

description of OFHEO’s performance, and will be issued by February 27, 2003. 

OFHEO’s ACCOMPLISHMENTS 

At year-end, OFHEO’s major criteria for achieving its mission have been satisfied. OFHEO classified

the Enterprises as adequately capitalized each quarter and determined through its examination

program that they meet or exceed safety and soundness standards. For the quarter ending September 

30, 2002, OFHEO used its Risk-Based Capital Standard as well as the Minimum Capital Standard in

determining the Enterprises’ capital classifications. This was the first time that OFHEO’s Risk-Based

Capital Standard was fully enforceable. 

OFHEO established four strategic objectives with 18 performance goals, as well as a crosscutting 

Human Resources Strategy with three performance goals. OFHEO achieved 19 of its 21 FY 2002 

performance goals, and achieved one of those remaining goals a quarter later than planned. In FY 

2002, OFHEO also achieved three deferred FY 2001 performance goals related to implementing the 

Risk-Based Capital Standard, as described in the FY 2001 Annual Performance Report. 

Strategic Objective 1: Ensure the Enterprises are adequately capitalized.

During FY 2002, the Enterprises met applicable capital standards quarterly, and OFHEO met its goal 

in this area. For each quarter, OFHEO applied the minimum capital standard to each Enterprise’s 

financial position and determined that they met the standard. For the quarter ending September 30,

2002, the first quarter for which the risk-based capital standard became fully enforceable, OFHEO 

applied that standard as well. 

During FY 2002, OFHEO’s task force to implement the risk-based capital rule worked with the

Enterprises to facilitate the data submission and clarify guidelines and procedures for the risk-based

capital classification. As part of the implementation, OFHEO also calculated each Enterprise’s capital 

levels for the first and second quarters of calendar year 2002 in accordance with the risk-based capital

standards and made the results public. Both Enterprises met the risk-based capital standards for those

two quarters. The Office also continues to monitor the Enterprises’ minimum capital levels monthly. 

OFHEO also published several adjustments and technical corrections to the risk-based capital

regulation in FY 2002. In future years, OFHEO will continue to review possible changes to the riskbased and minimum capital standards and will seek public comments on any proposed amendments. 

Strategic Objective 2: Ensure that the Enterprises comply with safety and soundness standards and

other legal requirements.

During FY 2002, OFHEO completed its comprehensive annual risk-based examinations. Through

these examinations for calendar year 2001, OFHEO determined that both Enterprises were financially

sound and well managed. As in prior years, before conducting the examinations, the Office 

established and shared with the Enterprises safety and soundness standards that reflect various

 7
components of risk and risk management. For these examinations, OFHEO considered five major 

areas–credit risk, market risk, operations risk, corporate governance and model risk. These risk areas 

contain 11 program areas, such as interest rate risk, liquidity management, and information

technology, for which over 100 factors are assessed at the start of the year and updated quarterly to 

reflect changes. The examination process and results are described in more detail in OFHEO’s 2002

Report to Congress. Both examinations were completed on schedule and both Enterprises responded

appropriately to examination issues. OFHEO initiated its calendar year 2002 examination in FY 2002. 

During FY 2002, OFHEO continued to monitor the Enterprises’ compliance with applicable laws; no

violations were identified. During the year, OFHEO issued several final regulations to strengthen its

regulatory infrastructure. These include regulations on Prompt Supervisory Response and Prompt 

Corrective Action, Flood Insurance, Corporate Governance, and a comprehensive Safety and 

Soundness rule. OFHEO also completed a review of executive compensation that updated the peer 

group of industry comparables used to benchmark Enterprise Executives’ compensation. During FY 

2002, no instances of excessive executive compensation were found. 

During the course of the year, OFHEO also analyzed several emerging topics that could relate to 

safety and soundness and/or legal requirements. These include establishing an internal working group 

on derivatives, working with the Securities and Exchange Commission (SEC) and the Treasury

Department on appropriate disclosure for the Enterprises, and monitoring the duration gap and interest 

rate risk at the Enterprises. 

Strategic Objective 3: Enhance public understanding of the nation’s housing finance system. 

OFHEO made great strides in this area in FY 2002—the first year that it was raised as a strategic

objective. OFHEO continued to issue its quarterly House Price Index, which documents changes in

house price trends for the nation, each state, the nine census regions and metropolitan statistical areas 

(MSA’s). In addition to issuing two analytical reports, its Annual Report to Congress and its report on 

Mortgage Markets and the Enterprises in 2001, OFHEO introduced a staff working paper series, 

initiated with two papers—Patterns of Default and Prepayment for Prime and Nonprime Mortgages, 

and Alternative Methods of Increasing the Precision of Weighted Repeat Sales House Prices Indices. 

All of these publications are available on OFHEO’s website. 

OFHEO also increased the transparency of its own analysis and operations. When announcing the 

capital levels of each Enterprise quarterly, OFHEO made public analytical information about the

components of the Enterprises’ holdings that affected the risk-based capital calculations and the

changes from quarter to quarter. OFHEO also made available to the public the guidelines related to 

the implementation of the risk-based capital standard and the treatment of new activities. 

For FY 2002, OFHEO established an ambitious research agenda. However, due to the press of other 

emerging issues, particularly disclosure, increased efforts on risk-based capital and OFHEO’s

systemic risk study, and work on credit risk for the Small Business Administration, OFHEO did not 

have the resources to complete its research agenda as originally envisioned. In future years, OFHEO

plans to revise its research agenda expectations by mid-year. 

 

OFHEO met all but two performance goals in this area, but met the second goal a quarter later than

planned when it issued the report on Mortgage Markets and the Enterprises in 2001 in September 

2002. 

 8
Strategic Objective 4: Contribute to Federal efforts to promote efficient and effective financial

markets and homeownership. 

While OFHEO had contributed to Federal efforts in an ongoing way, this was the first year that

OFHEO raised its participation to the strategic objective level. OFHEO continued work with the other 

Federal financial regulators, the Treasury Department, the Council of Economic Advisors, the Justice 

Department, and the Department of Housing and Urban Development on a variety of issues. These

include subprime lending, large bank examinations and other supervision issues, predatory lending

practices, mortgage fraud, the mortgage protection program, corporate disclosure, Federal Housing

Administration (FHA) issues, and early warning systems for risk management and risk modeling.

OFHEO has been asked to lead an interagency working group on Communications and Coordination

for the Financial and Banking Information Infrastructure Committee, a standing committee of the

President's Critical Infrastructure Protection Board. OFHEO is also working with the Treasury and 

SEC to study disclosure related to mortgage-backed securities. 

Human Resources Strategy: Ensure OFHEO’s human resources efficiently support the regulatory

mission. 

OFHEO’s workforce is a critical foundation for achieving all of its strategic objectives. OFHEO 

identified three crosscutting performance goals as indicative of an effective program to attract and 

retain the staff the Office needs. OFHEO met all three goals. OFHEO’s performance appraisal

system provides incentives for staff to achieve OFHEO’s strategic goals through merit pay based on 

performance of individual job performance plans. These individual plans tie to OFHEO’s Annual 

Performance Plans and Strategic Plan. To enhance and maintain their knowledge and expertise,

OFHEO staff continued to participate in training and development, including interagency forums and 

joint projects with other financial regulators or professional groups. No one declined an OFHEO job

offer because other regulators’ compensation systems and human resources policies were perceived as

more desirable. OFHEO also established individual development plans for each employee, a year 

ahead of schedule. 

FY 2003 and the Future 

For the next several years, OFHEO’s FY 2000-2005 Strategic Plan will provide a framework for the 

Office’s Annual Performance Plans and operations. The plan reflects OFHEO’s congressional 

mandate to ensure the safety and soundness of Fannie Mae and Freddie Mac and emphasizes the need 

to foster the strength and vitality of the nation’s housing finance system. In developing its FY 2003

Performance Plan, OFHEO consolidated the first two strategic objectives into one to recognize the

connectivity between capital adequacy and safety and soundness. An Enterprises’ capital adequacy is 

one of the indicators of safety and soundness and depends on factors in addition to meeting the

minimum and risk-based capital standards. OFHEO’s three primary regulatory responsibilities are 

incorporated in the plan: Ensuring that the Enterprises are adequately capitalized, conducting safety 

and soundness examinations, and undertaking research and analysis on emerging Enterprise-related 

matters. 

During FY 2003, in accordance with the Government Performance and Results Act, OFHEO will 

revise and update its long term Strategic Plan. 

 9
LIMITATIONS OF THE FINANCIAL STATEMENTS 

While OFHEO is not specifically covered by the requirements in the CFO Act, the Office has

prepared financial statements to report the financial position and results of operations of OFHEO, 

pursuant to the requirements of 31 U.S.C. 3515(b). The statements have been prepared from the

books and records of OFHEO in the format prescribed by OMB. These statements supplement the 

periodic financial reports used to monitor and control budgetary resources that were prepared from the

same books and records. The statements should be read with the realization that they are for a

component of the U.S. Government. 

The following principal statements present the financial position of OFHEO, an independent office 

within HUD, as of September 30, 2002, and September 30, 2001. The statements are in conformity 

with the instructions provided for federal entities by the OMB and comply with Statements of Federal 

Financial Accounting Standards effective as of September 30, 2002. 

 10
2002 2001

ASSETS

Intragovernmental Assets

 Fund Balance with Treasury - Note 2 $ 4,983,580 $ 4,628,495

 Accounts Receivable 12,412 46,459

 Advances/Prepayments - Note 3 118,625 575,339

Total Intragovernmental Assets 5,114,617 5,250,293

Accounts Receivable - 2,871

Property, Plant and Equipment, Net - Note 4 19,826,567 15,176,690

TOTAL ASSETS $ 24,941,184 $ 20,429,854

LIABILITIES

Liabilities Covered by Budgetary Resources:

Intragovernmental Liabilities

 Accrued Liabilities $ 86,949 $ 157,304

Total Intragovernmental Liabilities 86,949 157,304

Other Payables and Liabilities

 Accounts Payable 1,147,467 1,433,217

 Other Liabilities 398,607 859,872

Total Other Payables and Liabilities 1,546,074 2,293,089

Total Liabilities Covered by Budgetary Resources - Note 5 1,633,023 2,450,393

Liabilities Not Covered by Budgetary Resources:

Governmental

 Accrued Annual Leave 935,119 890,745

Total Liabilities Not Covered by Budgetary Resources - Note 6 935,119 890,745

TOTAL LIABILITIES $ 2,568,142 $ 3,341,138

NET POSITION

Unexpended Appropriations $ 3,228,855 $ 2,212,149

Cumulative Results of Operations 19,144,187 14,876,567

Total Net Position 22,373,042 17,088,716

TOTAL LIABILITIES AND NET POSITION $ 24,941,184 $ 20,429,854

OFFICE OF FEDERAL HOUSING ENTERPRISE OVERSIGHT

BALANCE SHEETS

AS OF SEPTEMBER 30, 2002 and 2001

The accompanying notes are an integral part of these statements.

17 
2002 2001

Program Costs

Program Costs

Intragovernmental Costs $ 3,171,039 $ 2,893,462

Less: Earned Revenues (121,703) -

Total Intragovernmental Costs 3,049,336 2,893,462

Public Costs 19,236,692 16,992,729

Total Net Program Costs - Note 8 $ 22,286,028 $ 19,886,191

Net Cost of Operations $ 22,286,028 $ 19,886,191

The accompanying notes are an integral part of these statements.

OFFICE OF FEDERAL HOUSING ENTERPRISE OVERSIGHT

STATEMENTS OF NET COST

SEPTEMBER 30, 2002 and 2001

FOR THE FISCAL PERIODS ENDED

18 
2002 Cumulative 2002 Unexpended 2001 Cumulative 2001 Unexpended

Results of Operations Approprations Results of Operations Appropriations

Beginning Balance $ 14,876,567 $ 2,212,149 $ 10,722,537 $ 3,755,944

Budgetary Financing Sources:

Appropriations Received $ - $ 27,000,000 $ - $ 22,000,000

Other Adjustments - (6,713) - (9,761)

Appropriations Used 25,976,581 (25,976,581) 23,534,034 (23,534,034)

Other Financing Sources:

Imputed Financing 577,067 - 506,187 -

Total Financing Sources $ 26,553,648 $ 1,016,706 $ 24,040,221 $ (1,543,795)

Net Cost of Operation (22,286,028) - (19,886,191) -

Ending Balance - Net Position $ 19,144,187 $ 3,228,855 $ 14,876,567 $ 2,212,149

The accompanying notes are an integral part of these statements.

OFFICE OF FEDERAL HOUSING ENTERPRISE OVERSIGHT

STATEMENTS OF CHANGES IN NET POSITION

FOR THE FISCAL PERIODS ENDED

SEPTEMBER 30, 2002 and 2001

19 
2002 2001

Budgetary Resources

Appropriations $ 27,000,000 $ 22,000,000

Unobligated Balance Brought Forward October 1 6,713 9,762

Spending Authority from Offsetting Collections

 Collected 121,702 -

 Recoveries of Prior Year Obligations - Note 10 215,885 605,000

 Permanently not available Pursuant to Public Law 102-550 (6,713) (9,762)

Total Budgetary Resources $ 27,337,587 $ 22,605,000

Status of Budgetary Resources

Obligations Incurred - Note 9 $ 27,336,445 $ 22,598,287

Unobligated Balance Not Available 1,142 6,713

Total Status of Budgetary Resources $ 27,337,587 $ 22,605,000

Relationship of Obligations to Outlays:

Obligated Balance, Net - Beginning of Period 4,655,829 5,930,001

Obligation Transfer

Obligated Balance, Net - End of Period

 Undelivered Orders (3,349,415) (2,205,436)

 Accounts Payable (1,633,023) (2,450,393)

Total Obligated Balance, Net - End of Period (4,982,438) (4,655,829)

Outlays

Disbursements $ 26,793,952 $ 23,306,279

Less: Collections (121,702) (4,773)

Net Outlays $ 26,672,250 $ 23,301,506

The accompanying notes are an integral part of these statements.

OFFICE OF FEDERAL HOUSING ENTERPRISE OVERSIGHT

STATEMENTS OF BUDGETARY RESOURCES

FOR THE FISCAL PERIODS ENDED

SEPTEMBER 30, 2002 and 2001

20 
2002 2001

Budgetary Resources Obligated

Obligations Incurred $ 27,336,445 $ 22,598,287

Less: Spending Authority from Offsetting Collections/Adjustments

 Collections (121,702) -

 Receivables from Federal Sources - (12,412)

 Recoveries of Prior Year Obligations - Note 10 (215,885) (605,000)

Obligations Net of Offsetting Collections and Recoveries $ 26,998,858 $ 21,980,875

Exchange revenue Not in Entity's Budget 2,871 (2,871)

Net Obligations $ 27,001,729 $ 21,978,004

Other Resources

 Imputed Financing from Costs Absorbed by Others 577,067 506,187

Net Other Resources Used to Finance Activities 577,067 506,187

Total Resources Used to Finance Activities $ 27,578,796 $ 22,484,191

Resources Used to Finance Items not Part of the Net Cost of Operations

(Increase) Decrease in Goods/Services/Benefits Ordered but not Provided (687,265) 1,425,550

Resources That Finance the Acquisition of Assets (5,697,403) (4,544,471)

Total Resources Used to Finance Items not Part of the Net Cost of Operations (6,384,668) (3,118,921)

Total Resources Used to Finance the Net Cost of Operations $ 21,194,128 $ 19,365,270

Components of the Net Cost of Operations that will Require or Generate

Resources in Future Periods

 Increase in Annual Leave Liability 44,374 217,226

Total Components of Net Cost of Operations that will Require or Generate

 Resources in Future Periods 44,374 217,226

Components Not Requiring or Generating Resources:

Depreciation and Amortization 1,047,526 303,695

Total Components Not Requiring or Generating Resources 1,047,526 303,695

Net Cost of Operations $ 22,286,028 $ 19,886,191

The accompanying notes are an integral part of these statements.

OFFICE OF FEDERAL HOUSING ENTERPRISE OVERSIGHT

STATEMENTS OF FINANCING

FOR THE FISCAL PERIODS ENDED

SEPTEMBER 30, 2002 and 2001

21 
 NOTES TO FINANCIAL STATEMENTS

NOTE 1 – SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES 

• Reporting Entity 

The Office of Federal Housing Enterprise Oversight (OFHEO) was established as an independent 

office within the Department of Housing and Urban Development (HUD) by the Federal Housing

Enterprises Financial Safety and Soundness Act of 1992 (title XIII of P.L. 102-550). OFHEO is 

responsible for examination of Fannie Mae and Freddie Mac, and determining whether the 

Enterprises are operating in a financially safe and sound manner and are adequately capitalized. 

The accompanying financial statements reflect the activities of OFHEO. OFHEO has only entity 

activities and the financial statements reflect those activities, which include the appropriation 

received to conduct operations. OFHEO does not perform custodial activities on behalf of other 

federal agencies. 

• Basis of Presentation

OFHEO is not covered by the Chief Financial Officer’s (CFO) Act and is not required to follow 

the Office of Management and Budget (OMB) Bulletin 01-09. However, OFHEO adopted 

OMB’s requirements for CFO Act financial statements. The principal statements were prepared 

from the official financial records and general ledger of OFHEO in accordance with Generally 

Accepted Accounting Principles (GAAP) as established through the Federal Accounting 

Standards Advisory Board (FASAB) standards. 

• Basis of Accounting 

Transactions are recorded on both an accrual accounting basis and on a budgetary basis. Under

the accrual method, revenues are recognized when earned and expenses are recognized when a 

liability is incurred, without regard to receipt or payment of cash. Budgetary accounting 

facilitates compliance with legal requirements and controls over the use of Federal funds. 

OFHEO complies with the U.S. Standard General Ledger and conforms to the hierarchy of the

American Institute of Certified Public Accountants (AICPA) through Statement on Auditing 

Standards (SAS) No. 69, as amended by SAS No. 91, Federal GAAP Hierarchy, of accounting 

principles for the Federal Government: 

Federal Accounting Standards Advisory Board (FASAB) Statements and 

Interpretations plus AICPA and Financial Accounting Standards Board (FASB) 

pronouncements if made applicable to the Federal governmental entities by a 

FASAB Statement or Interpretation; 

FASAB Technical Bulletins and the following pronouncements if specifically 

made applicable to Federal governmental entities by the AICPA and cleared by

the FASAB: AICPA Industry Audit and Accounting Guides and AICPA 

Statements of Position; 

 22
NOTE 1 – SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES (Continued) 

AICPA Accounting Standards Executive Committee (ACSEC) Practice Bulletins 

if specifically made applicable to Federal governmental entities and cleared by 

the FASAB and Technical Releases of the Accounting and Auditing Policy

Committee of the FASAB;

Implementation guides published by the FASAB staff and practices that are

widely recognized and prevalent in the Federal government (OMB Circular A134); and 

Accounting policy and procedures established by OFHEO to enhance 

consistency or to provide guidance in the absence of government-wide standards. 

• Funds with the U.S. Treasury 

 

Since 1993, Congress has enacted each year a “no-year” appropriation to fund OFHEO’s 

operating costs. The appropriation is paid by an annual assessment from Fannie Mae and Freddie

Mac and not with taxpayer funds. Beginning with the FY 1998 appropriation, OFHEO receives 

an appropriation warrant from the U.S. Treasury General Fund each year, and fully offsets the 

General Fund warrant with money collected from the Enterprises. 

OFHEO’s enabling statute requires that each year OFHEO return to the Enterprises unobligated 

funds as of the end of the fiscal year. It is important to understand how the crediting provision

functions with the “no year” fund designation. “No year” funds are available for obligation

without fiscal year limitation. Rules for “no year” funds essentially removes all statutory limits 

as to when the funds may be obligated and expensed, and funds remain available for their original

purpose until expended. When OFHEO closes its books each fiscal year, it accounts for funds not

obligated as of the end of that fiscal year (September 30). OFHEO reduces the current year’s

(October 1) assessment by the amount of the unobligated balance from the previous year.

Consequently, there is no carry over of budget authority from one year to the next and the amount

of funds collected from the Enterprises in the annual assessment is adjusted by the credit awarded

to the Enterprises for unobligated funds from the prior year. 

OFHEO cash receipts and disbursements are processed by the United States Department of the 

Treasury (Treasury). The funds with Treasury are primarily assessment funds that are available 

to pay current liabilities and to finance authorized purchase commitments. OFHEO does not have 

monetary assets held outside OFHEO’s fund balance at Treasury. OFHEO does not have an

advance from Treasury to maintain an Imprest Fund and does not hold any marketable or nonmarketable securities. OFHEO does not operate a direct loan or loan guarantee program. 

• Property and Equipment 

OFHEO’s property and equipment is recorded at cost and is depreciated using the straight-line 

method over the estimated service lives of the assets. Service lives have been established as three 

years for computer related systems and up to 20 years for other equipment. Leasehold

improvements are depreciated over the remaining term of the lease agreement. OFHEO has an

established capitalization threshold of $5,000 to conform with the materiality approach for the 

accounting that supports OFHEO’s independent financial statements. Other property items, 

normal repairs, and maintenance are charged to expense as incurred.

 23
NOTE 1 – SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES (Continued) 

OFHEO has no capitalized leases, no real property holdings, and no heritage assets. 

• Advances and Prepayments

Payments in advance of the receipt of goods and services are recorded as prepaid charges at the

time of prepayment and are recognized as expenditures/expenses when the related goods and 

services are received. 

• Accounts Receivable 

OFHEO’s Accounts Receivable consists of receivables and reimbursements due from others. No 

account is estimated as uncollectable. 

• Liabilities 

Liabilities represent the amount of funds that are likely to be paid by OFHEO as the result of a 

transaction or event that has already occurred. 

OFHEO reports its liabilities under two categories: Liabilities Covered by Budgetary Resources 

and Liabilities Not Covered by Budgetary Resources. 

OFHEO’s Liabilities Covered by Budgetary Resources are liabilities that are funded by a current 

appropriation or other funding source. Both intragovernmental (payable to other federal entities) 

and governmental liabilities consist of accounts payable and accrued liabilities. Accounts 

payable reflect invoices processed for payment during the fiscal year which are yet unpaid as of 

the end of the fiscal year due to scheduling of payments to reflect prompt payment guidelines. 

Accrued liabilities consist of both estimates of accounts payable for the value of services received 

during the fiscal year for which OFHEO had not been billed as of the end of the fiscal year and 

payroll accruals reflecting payroll costs earned by employees during the fiscal year which are not 

paid until the next fiscal year. 

OFHEO’s Liabilities Not Covered by Budgetary Resources are liabilities that are not funded by 

any current appropriation or other funding source. These liabilities consist of accrued annual 

leave at the end of the fiscal year. Reimbursements owed to the Department of Labor for claims

already paid under the Federal Employees Compensation Act would also be reported under this 

liability category: however, OFHEO has no claims outstanding in FY 2002 and 2001. In

addition, a liability for any future claims (future worker’s compensation) would be reported in 

this category. The agency’s methodology for estimating this future worker’s compensation

liability determined that the liability would be negligible and therefore no liability is recorded for 

fiscal years 2002 or 2001.

• Retirement Plans 

OFHEO participates in the retirement plans offered by the Office of Personnel Management 

(OPM) and does not maintain any private retirement plans. The majority of OFHEO’s employees

participate in either the Civil Service Retirement System (CSRS) or the Federal Employees

Retirement System (FERS). OFHEO expenses its contributions to the retirement plans of

covered employees as the expenses are incurred. OFHEO is reporting imputed financing with 

 24
NOTE 1 – SUMMARY OF SIGNIFICANT ACCOUNTING POLICIES (Continued)

respect to retirement plans, health benefits and life insurance pursuant to guidance received from

OPM. These costs are paid by OPM and not by OFHEO. Disclosure is intended to provide

information regarding the full cost of OFHEO’s program in accordance with GAAP. 

• Net Position 

OFHEO’s net position is comprised of the following components: 

1) Undelivered orders and unobligated balances of OFHEO’s funds. 

2) Invested capital represents U.S. Government resources invested in OFHEO’s property 

and equipment and inventory not held for sale. Increases to invested capital are recorded 

when assets are acquired with direct appropriations, and decreases are recorded as a result 

of the depreciation, disposition of capital assets, or consumption of inventory. 

3) Future funding requirements represent accumulated annual leave earned but not taken as 

of the financial statement date. The expense for these accruals is not funded from current 

assessments, but will be funded from future assessments as the expenses are incurred. 

4) Prepayments and advances of OFHEO’s funds. 

NOTE 2 - FUND BALANCE WITH TREASURY

Fund Balance with Treasury consists of the following as of September 30, 2002 and 2001: 

Unobligated 

Obligated Available Unavailable 2002 2001

General Funds $4,982,438 - $1,142 $4,983,580 $4,628,495

NOTE 3 – ADVANCES/PREPAYMENTS

The Advances/Prepayments are payments made to the Office of Thrift Supervision (OTS) for

additional occupancy space contracted for in fiscal year 2001 but not occupied until fiscal year 

2002 and for additional occupancy space contracted for in fiscal year 2002 but not to be occupied 

until fiscal year 2003. 

NOTE 4 - PROPERTY, PLANT AND EQUIPMENT 

As part of OFHEO’s mission, OFHEO developed software to model the Risk-Based Capital stress

test (Stress Test) required by the Federal Housing Enterprises Financial Safety and Soundness

Act of 1992. Under the terms of that statute and the final Risk-Based Capital rule published in 

September 2001, the quarter ended September 30, 2002 was the first quarter that the risk-based 

standard was fully enforceable. Since the quarter ended September 30, 2002 was the first time 

that the software was used to establish the risk-based capital requirement on other than a trial test, 

depreciation will begin when the data from the Enterprises has been received and 

 25
NOTE 4 - PROPERTY, PLANT AND EQUIPMENT (Continued) 

processed through the stress test software. Property, Plant and Equipment balances as of

September 30, 2002 and 2001 are as follows: 

2002 2001

Acquisition Accumulated Net Net

Asset Type Cost Depreciation Book Value Book Value

Equipment $ 5,119,576 $1,723,973 $ 3,395,603 $ 705,124

Leasehold Improvements 1,498,036 129,352 1,368,684 465,797

Information Technology Software 15,062,280 - 15,062,280 14,005,769

Total $21,679,892 $1,853,325 $19,826,567 $15,176,690

NOTE 5 – LIABILITIES COVERED BY BUDGETARY RESOURCES 

 

2002 2001

Intragovernmental Accrued Accounts Payable $ 86,949 $ 157,304

Other Liabilities 1,147,467 1,433,217

Sub-Total Intragovernmental/Other Liabilities $1,234,416 $1,590,521

Accrued Payroll and Benefits 398,607 859,872

Liabilities Covered by Budgetary Resources $1,633,023 $2,450,393

NOTE 6 – LIABILITIES NOT COVERED BY BUDGETARY RESOURCES

Liabilities Not Covered by Budgetary Resources consists of Accrued Annual Leave earned but

not used as of September 30, 2002 and 2001. The accrued annual leave liability is adjusted as 

leave is earned and used through out the year. The expense for these accruals will be funded 

from future assessments as the expenses are incurred. The net changes of the Accrued Annual 

Leave are reflected in the Statement of Financing. 

NOTE 7 – OPERATING LEASE 

OFHEO has an occupancy lease with the Office of Thrift Supervision (OTS) that covers office

space and building services which include utilities, security guards, janitorial services, mail

delivery, use of the loading dock, garage parking and building operation and maintenance. The 

initial term of the lease was for five years beginning in 1993, with the option to renew for three 5-

year terms. OFHEO has exercised the first of the three option terms. Total rent expense for years 

ending September 30, 2002 and 2001 was approximately $2.5 million and $1.8 million 

respectively.

OFHEO may terminate the lease agreement in whole or in part. In the event of a termination at 

OFHEO’s discretion, OFHEO would be required to pay two months rent, at an approximate cost 

of $364,000 (based on September 2002 rate). OFHEO’s obligation to make payments ceases on

the date that the space is rented. If either party ceases to exist or merge with another entity by 

operation of law, either party may terminate the rental agreement. In the event of termination 

under this provision, neither party is liable for further costs, fees, damages or other monies due to 

the termination, except for payments through the date of termination. 

 26
NOTE 7 – OPERATING LEASE (Continued) 

During FY 2001 and FY 2002, OFHEO rented additional space from OTS, which was not ready

for occupancy until FY 2002 and FY 2003 respectively, therefore, OFHEO is reflecting the 

remaining balance of these rental payments as Advances/Prepayments. 

NOTE 8 – PROGRAM COSTS 

OFHEO does not have any stewardship responsibilities for federal lands. Production Costs 

represent assessment collections, from Fannie Mae and Freddie Mac, that have been expensed for 

salaries and operating expenses to support OFHEO during the fiscal years ended September 30, 

2002 and 2001. Production Costs are distributed into two categories: Public and Federal. Public 

costs result from contracts with the private sector for goods or services. Federal costs are a result 

of OFHEO contracting with other federal agencies for goods and/or services (e.g. purchase of

supplies from the General Services Administration).

2002 2001

Intragovernmental Program Costs $ 3,084,090 $ 2,736,158

Less: Earned Revenue (121,703) -

Accrued Accounts Payable Federal 86,949 157,304

Total Federal Program Costs $ 3,049,336 $ 2,893,462

Public Program Costs Paid $17,041,699 $15,445,907

Accrued Accounts Payable Public 1,147,467 1,243,127

Depreciation Expense 1,047,526 303,695

Total Public Program Costs $19,236,692 $16,992,729

Total Program Costs $22,286,028 $19,886,191

NOTE 9 – APPORTIONMENT CATEGORIES OF OBLIGATIONS INCURRED 

Obligations incurred as reported on the Combined Statement of Budgetary Resources in 2002 and 

2001 consisted of the following: 

2002 2001

Direct Obligations – Category B $27,214,743 $22,598,287

Reimbursable Obligations - Category B 121,702 -

Total Obligations Incurred $27,336,445 $22,598,287

NOTE 10 - RECOVERIES OF PRIOR YEAR OBLIGATIONS 

Recoveries of prior year obligations consist of the reapportionment of prior year funds by OMB. 

OFHEO requested and received the authority to re-obligate these prior year funds in FY 2002 and 

also in FY 2001. 

 27
NOTE 11 – EXPLANATION OF DIFFERENCES BETWEEN THE STATEMENT OF

BUDGETARY RESOURCES AND THE BUDGET OF THE UNITED STATES

GOVERNMENT 

The Budget of the United States Government with actual amounts for the year ended 

September 30, 2002 has not been published as of the issue date of these financial statements. 

This document will be available in February 2003. 

 28
Trading Partner Agency 2002 2001

Department of Treasury

1 $ 4,983,580 $ 4,628,495

National Finance Center2 12,412 12,412

Office of Thrift Supervision 118,625 3 609,386

$ 5,114,617 $ 5,250,293

1 Fund balance with Treasury consists of assessment funds that are available to pay current liabilities

 and to finance authorized purchase commitments.

2 During FY 2001 duplicate awards were processed. Employees have issued checks for repayment to

 the National Finance Center, OFHEO is awaiting the refund from the National Finance Center.

 Reflected as an Accounts Receivable from the National Finance Center.

3 During FY 2001 OFHEO rented additional space from OTS, this space was not occupied until FY 2002,

 therefore, OFHEO reflected this rental payment for additional space as a Prepayment. This is the

 remaining balance of prepaid rent for fiscal year end September 30, 2002. The FY 2001 amount includes

 an erroneous OPAC charge of $34,047, that was rejected on October 1, 2001.

Trading Partner Agency 2002 2001

Comptroller of the Currency $ - $ 100

Federal Deposit Insurance Corp - 46,000

Department of Treasury 705 1,592

Office of Thrift Supervision 2,500 15,902

Department of Veteran's Affairs 14,860 44,196

Department of Housing and Urban Development 63,484 40,827

Department of Commerce 4,200 8,507

Office of Personnel Management 1,200 -

Department of State - 180

$ 86,949 $ 157,304

OFHEO's intra-governmental liabilities consist of accounts payable for the value of services received during

the fiscal year for which OFHEO had not been billed as of the end of the fiscal year.

Office of Federal Housing Enterprise Oversight

Intra-governmental Liabilities

Intra-governmental Assets

Required Supplementary Information

Intra-governmental Trading Partners

As of September 30, 2002 and 2001

29 
CHAPTER SIX - HISTORICAL DATA TABLES 

CHAPTER SIX: HISTORICAL DATA TABLES

Table 1. Fannie Mae Mortgage Purchases................................................................................................74 

Table 1a. Fannie Mae Mortgage Purchases Detail, By Type of Loan - Part 1, Single-Family...................75 

Table 1a. Fannie Mae Mortgage Purchases Detail, By Type of Loan - Part 2, Multifamily ......................76 

Table 1b. Fannie Mae Purchases of Mortgage-Related Securities..............................................................77

Table 2. Fannie Mae MBS Issuances........................................................................................................78

Table 3. Fannie Mae Earnings..................................................................................................................79 

Table 3a. Fannie Mae Earnings..................................................................................................................80 

Table 4. Fannie Mae Balance Sheet..........................................................................................................81 

Table 4a. Fannie Mae Total MBS Outstanding Detail - Part 1, Single-Family ..........................................82 

Table 4a. Fannie Mae Total MBS Outstanding Detail - Part 2, Multifamily..............................................83 

Table 5. Fannie Mae Retained Mortgage Portfolio Detail........................................................................84 

Table 5a. Fannie Mae Retained Mortgage Portfolio Detail - Part 1a, Whole Loans ..................................85 

Table 5a. Fannie Mae Retained Mortgage Portfolio Detail - Part 1b, Whole Loans..................................86 

Table 5a. Fannie Mae Retained Mortgage Portfolio Detail - Part 2a, Mortgage-Related Securities.........87 

Table 5a. Fannie Mae Retained Mortgage Portfolio Detail - Part 2b, Mortgage-Related Securities..........88 

Table 6. Fannie Mae Financial Derivatives..............................................................................................89 

Table 7. Fannie Mae Non-Mortgage Investments.....................................................................................90 

Table 8. Fannie Mae Asset - Liability Mix...............................................................................................91 

Table 9. Fannie Mae Mortgage Asset Quality ..........................................................................................92 

Table 10. Fannie Mae Capital.....................................................................................................................93 

Table 11. Freddie Mac Mortgage Purchases...............................................................................................94 

Table 11a. Freddie Mac Mortgage Purchases Detail, by Type of Loan - Part 1, Single-Family ..................95 

Table 11a. Freddie Mac Mortgage Purchases Detail, By Type of Loan - Part 2, Multifamily .....................96 

Table 11b. Freddie Mac Purchases of Mortgage-Related Securities ............................................................97 

Table 12. Freddie Mac MBS Issuances ......................................................................................................98 

Table 13. Freddie Mac Earnings.................................................................................................................99 

Table 13a. Freddie Mac Earnings...............................................................................................................100 

Table 14. Freddie Mac Balance Sheet ......................................................................................................101 

Table 14a. Freddie Mac Total MBS Outstanding Detail ............................................................................102 

Table 15. Freddie Mac Retained Mortgage Portfolio Detail.....................................................................103

Table 15a. Freddie Mac Retained Mortgage Portfolio Detail - Part 1a, Whole Loans...............................104 

Table 15a. Freddie Mac Retained Mortgage Portfolio Detail - Part 1b, Whole Loans...............................105 

Table 15a. Freddie Mac Retained Mortgage Portfolio Detail - Part 2a, Mortgage-Related Securities.......106 

Table 15a. Freddie Mac Retained Mortgage Portfolio Detail - Part 2b, Mortgage-Related Securities.......107 

Table 16. Freddie Mac Financial Derivatives...........................................................................................108 

Table 17. Freddie Mac Non-Mortgage Investments .................................................................................109

Table 18. Freddie Mac Asset Mix.............................................................................................................110 

Table 19. Freddie Mac Mortgage Asset Quality.......................................................................................111 

Table 20. Freddie Mac Capital..................................................................................................................112 

Table 21. Combined Purchases.................................................................................................................113 

Table 21a. Combined Mortgage Purchases Detail, By Type of Loan - Part 1, Single-Family ...................114 

Table 21a. Combined Mortgage Purchases Detail, By Type of Loan - Part 2, Multi-Family ....................115 

Table 21b. Combined Purchases of Mortgage-Related Securities..............................................................116 

Table 22. Combined MBS Issuances........................................................................................................117 

Table 23. Combined Earnings...................................................................................................................118 

Table 24. Combined Balance Sheet..........................................................................................................119 

Table 24a. Combined Total MBS Outstanding Detail................................................................................120 

Table 25. Combined Financial Derivatives...............................................................................................121 

Table 26. Combined Non-Mortgage Investments.....................................................................................122 

72
CHAPTER SIX - HISTORICAL DATA TABLES 

Table 27. Combined Capital .....................................................................................................................123 

Table 28. Loan Limits............................................................................................................................124 

Table 29. Mortgage Interest Rates............................................................................................................125 

Table 30. Housing Market Activity ..........................................................................................................126 

Table 31. Weighted Repeat Sales House Price Index ...............................................................................127 

73
74

Table 1. Fannie Mae Mortgage Purchases

Business Activity ($ in Millions)

 Period 

 Purchases 

 Single-Family

($)

 Multifamily

($)

 Total 1

($)

1 Cash purchases plus securitizations; excludes non-Fannie Mae securities and repurchased Fannie Mae MBS. 

 Mortgage Securities2

($)

2 Not included in total purchases.

4Q02 289,135 7,169 296,304 109,949

3Q02 177,042 2,775 179,817 49,838

2Q02 144,969 2,829 147,798 39,086

1Q02 189,170 3,838 193,008 70,061

Annual Data

2002 800,316 16,611 816,927 268,934

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
75

Table 1a. Fannie Mae Mortgage Purchases Detail, By Type of Loan - Part 1, Single-Family

Period

 Purchases1 ($ in Millions)

Single-Family Mortgages

Conventional FHA/VA

Total

Single-Family

Mortgages

($)

FixedRate

($)

AdjustableRate

($)

Seconds

($)

Total

($)

FixedRate

 ($)

AdjustableRate

($)

Total

($)

4Q02 262,795 25,663 10 288,468 201 667 289,135

3Q02 160,378 16,010 10 176,398 265 379 644 177,042

2Q02 131,226 13,060 9 144,295 296 378 674 144,969

1Q02 176,260 12,039 12 188,311 534 325 859 189,170

Annual Data

2002 730,659 66,772 41 797,472 1,296 1,548 2,844 800,316

2001 534,115 25,648 1,137 560,900 5,671 1,102 6,773 567,673

2000 187,236 33,809 726 221,771 4,378 920 5,298 227,069

1999 293,188 12,138 1,198 306,524 8,529 1,084 9,613 316,137

1998 334,367 14,273 1 348,641 5,768 511 6,279 354,920

1997 136,329 21,095 3 157,427 2,062 432 2,494 159,921

1996 146,154 15,550 3 161,707 2,415 334 2,749 164,456

1995 104,901 17,978 9 122,888 3,009 106 3,115 126,003

1994 139,815 16,340 8 156,163 1,953 113 2,066 158,229

1993 274,402 14,420 29 288,851 855 120 975 289,826

1992 226,332 21,001 136 247,469 1,055 79 1,134 248,603

1991 114,321 17,187 705 132,213 1,300 38 1,338 133,551

1990 95,011 14,528 654 110,193 799 15 814 111,007

1989 60,794 17,692 521 79,007 1,489 14 1,503 80,510

1988 35,767 27,492 433 63,692 823 98 921 64,613

1987 60,434 10,675 139 71,248 2,649 45 2,694 73,942

1986 58,521 7,305 498 66,054 11,155 14 11,169 77,223

1985 29,993 10,736 871 41,600 927 16 943 42,543

1984 17,998 8,049 937 26,984 729 0 729 27,713

1983 18,136 4,853 1,408 24,397 1,942 0 1,942 26,339

1982 19,311 3,210 1,552 24,073 1,856 0 1,856 25,929

1981 4,260 107 176 4,543 2,284 0 2,284 6,827

1980 2,802 0 0 2,802 5,272 0 5,272 8,074

1979 5,410 0 0 5,410 5,388 0 5,388 10,798

1978 5,682 0 0 5,682 6,620 0 6,620 12,302

1977 2,366 0 0 2,366 2,284 0 2,284 4,650

1976 2,513 0 0 2,513 824 0 824 3,337

1975 547 0 0 547 3,099 0 3,099 3,646

1974 1,128 0 0 1,128 3,618 0 3,618 4,746

1973 939 0 0 939 3,231 0 3,231 4,170

1972 55 0 0 55 2,541 0 2,541 2,596

1971 0 0 0 0 2,742 0 2,742 2,742

Source: Fannie Mae 

1 Cash purchases plus securitizations; excludes non-Fannie Mae securities and repurchased Fannie Mae MBS.
76

Table 1a. Fannie Mae Mortgage Purchases Detail, By Type of Loan - Part 2, Multifamily

 Purchases1 ($ in Millions)

Period

Multifamily Mortgages

Total

 Mortgage

Purchases

($)

Conventional

 ($)

FHA/RHS

($)

Total

Multifamily

Mortgages

($)

4Q02 4,587 2,582 7,169 296,304

3Q02 2,765 10 2,775 179,817

2Q02 2,821 8 2,829 147,798

1Q02 3,777 61 3,838 193,008

Annual Data

2002 13,950 2,661 16,611 816,927

2001 17,849 1,282 19,131 586,804

2000 9,127 1,250 10,377 237,446

1999 8,858 1,153 10,011 326,148

1998 10,844 584 11,428 366,348

1997 5,936 598 6,534 166,455

1996 6,199 252 6,451 170,907

1995 4,677 289 4,966 130,969

1994 3,620 219 3,839 162,068

1993 3,919 216 4,135 293,961

1992 2,845 111 2,956 251,559

1991 3,183 21 3,204 136,755

1990 3,165 15 3,180 114,187

1989 4,309 16 4,325 84,835

1988 4,149 21 4,170 68,783

1987 1,463 270 1,733 75,675

1986 1,877 0 1,877 79,100

1985 1,200 0 1,200 43,743

1984 1,106 0 1,106 28,819

1983 128 12 140 26,479

1982 0 10 10 25,939

1981 0 2 2 6,829

1980 0 27 27 8,101

1979 0 9 9 10,807

1978 0 3 3 12,305

1977 0 134 134 4,784

1976 0 295 295 3,632

1975 0 674 674 4,320

1974 0 2,273 2,273 7,019

1973 0 2,082 2,082 6,252

1972 0 1,268 1,268 3,864

1971 0 1,298 1,298 4,040

Source: Fannie Mae 

1 Cash purchases plus securitizations; excludes non-Fannie Mae securities and repurchased Fannie Mae MBS. 
77

Table 1b. Fannie Mae Purchases of Mortgage-Related Securities

 Purchases1 ($ in Millions)

End of 

Period

Enterprise

Securities

($)

Others’ Securities

Mortgage

Revenue

Bonds

($)

Total

MortgageRelated

Securities

($)

Freddie

Mac

($)

Ginnie

Mae

($)

Private - Label

Home

Equity2

($)

Manufactured

Housing

($)

Other

($)

Total

Private

($)

4Q02 104,525 2,189 0 1,458 0 661 2119 1,116 109,949

3Q02 44,269 1,929 0 2,193 0 646 2,839 801 49,838

2Q02 29,133 2,756 4,425 1,272 56 52 1,380 1,392 39,086

1Q02 67,112 1,083 0 620 0 258 878 988 70,061

Annual Data

2002 245,039 7,957 4,425 5,543 56 1,617 7,216 4,297 268,934

2001 180,582 20,072 333 1,466 Not

Available

Before

2002

2,047 3,513 4,624 209,124

2000 104,904 10,171 2,493 Not

Available

Before

2001

8,466 8,466 3,682 129,716

1999 125,498 6,861 17,561 16,511 16,511 3,474 169,905

1998 104,728 21,274 2,738 15,721 15,721 2,799 147,260

1997 39,033 2,119 3,508 4,188 4,188 1,469 50,317

1996 41,263 779 2,197 777 777 1,727 46,743

1995 30,432 2,832 20 752 752 2,222 36,258

1994 21,660 571 2,321 0 0 1,353 25,905

1993 6,275 0 0 0 0 331 6,606

1992 4,930 0 0 0 0 498 5,428

1991 2,384 0 0 0 0 696 3,080

1990 977 0 0 0 0 474 1,451

Source: Fannie Mae

1 Cash purchases plus securitizations; excludes non-Fannie Mae securities and repurchased Fannie Mae MBS. 

2 Purchases incorporate securities specifically identified as home equity or seconds. Other security purchases may include some underlying loans which are 

home equity or seconds. 
78

Table 2. Fannie Mae MBS Issuances

Business Activity ($ in Millions)

 Period 

MBS Issuances

 Single-Family MBS

($)

 Multifamily MBS

($)

 Total MBS

($)

Multiclass MBS1

($)

1 The majority qualify as Real Estate Mortgage Investment Conduits (REMICs) and are also known as structured securitizations.

4Q02 262,562 5,427 267,989 47,294

3Q02 158,649 1,971 160,620 25,521

2Q02 132,863 2,143 135,006 40,261

1Q02 173,183 2,797 175,980 57,719

Annual Data

2002 727,257 12,338 739,595 170,795

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

Not

Issued

Before

1981

Not

Issued

Before

1981

Source: Fannie Mae
79

Table 3. Fannie Mae Earnings

Earnings ($ in Millions)

Period

Core Net Interest

Income1

($)

1 Interest income net of interest expense, nominal basis, adjusted to remove FAS 133 effects starting in 2001.

Guarantee

Fee Income

($)

Average Guarantee

Fee Rate

(BasisPoints)

Administrative

Expenses

($)

Credit-related

Expenses2

($)

2 Credit-related expenses are mortgage loan loss provision plus real estate owned expenses.

Core Net

Income3

($)

3 Net income adjusted to remove FAS 133 effects starting in 2001.

4Q02 2,238 523 20.4 313 33 1,672

3Q02 2,192 463 19.0 315 14 1,631

2Q02 2,202 423 18.3 301 24 1,573

1Q02 2,120 407 18.6 290 21 1,518

Annual Data

2002 8,752 1,816 19.1 1,219 92 6,394

2001 7,500 1,482 19.0 1,017 78 5,367

2000 5,674 1,351 19.5 905 94 4,448

1999 4,894 1,282 19.3 800 127 3,912

1998 4,110 1,229 20.2 708 261 3,418

1997 3,949 1,274 22.7 636 375 3,056

1996 3,592 1,196 22.4 560 409 2,725

1995 3,047 1,086 22.0 546 335 2,144

1994 2,823 1,083 22.5 525 378 2,132

1993 2,533 961 21.3 443 305 1,873

1992 2,058 834 21.2 381 320 1,623

1991 1,778 675 21.0 319 370 1,363

1990 1,593 536 21.1 286 310 1,173

1989 1,191 408 21.3 254 310 807

1988 837 328 21.6 218 365 507

1987 890 263 22.1 197 360 376

1986 384 175 23.8 175 306 105

1985 139 112 25.6 142 206 (7)

1984 (90) 78 26.2 112 86 (71)

1983 (9) 54 26.3 81 48 49

1982 (464) 16 27.2 60 36 (192)

1981 (429) 0 25.0 49 (28) (206)

1980 21 Not

Available

Before

1981

Not

Available

Before

1981

44 19 14

1979 322 46 35 162

1978 294 39 36 209

1977 251 32 28 165

1976 203 30 25 127

1975 174 27 16 115

1974 142 23 17 107

1973 180 18 12 126

1972 138 13 5 96

1971 49 15 4 61

Source: Fannie Mae
80

Table 3a. Fannie Mae Earnings

Earnings ($ in Millions)

Period

Net

Income

($)

 Remove

Purchased

Option

(Income)

Expense

($)

Purchased

Option

Amortization

Expense

 ($)

Cumulative

Gain on

Adoption of

FAS 133

($)

Tax Effects of

Preceding

Adjustments

($)

Core

Net Income1

($)

Return on

Adjusted

Common

Equity2

(%)

4Q02 952 1,881 (774) 0 (387) 1,672 26.4

3Q02 993 1,378 (399) 0 (341) 1,631 26.2

2Q02 1464 499 (331) 0 (59) 1,573 25.8

1Q02 1210 787 (310) 0 (169) 1,518 25.8

Annual Data

2002 4619 4,545 (1,814) 0 (956) 6,394 26.1

2001 5894 37 (590) (258) 284 5,367 25.4

2000 4,448 Not

Applicable

Before

2001

Not

Applicable

Before

2001

Not

Applicable

Before

2001

Not

Applicable

Before

2001

4,448 25.2

1999 3,912 3,912 25.0

1998 3,418 3,418 25.2

1997 3,056 3,056 24.6

1996 2,725 2,725 24.1

1995 2,144 2,144 20.9

1994 2,132 2,132 24.3

1993 1,873 1,873 25.3

1992 1,623 1,623 26.5

1991 1,363 1,363 27.7

1990 1,173 1,173 33.7

1989 807 807 31.1

1988 507 507 25.2

1987 376 376 23.5

1986 105 105 9.5

1985 (7) (7) (0.7)

1984 (71) (71) (7.4)

1983 49 49 5.1

1982 (192) (192) (18.9)

1981 (206) (206) (17.2)

1980 14 14 0.9

1979 162 162 11.3

1978 209 209 16.5

1977 165 165 15.3

1976 127 127 13.8

1975 115 115 14.1

1974 107 107 14.7

1973 126 126 20.3

1972 96 96 18.8

1971 61 61 14.4

Source: Fannie Mae

1 Reported net income adjusted for net effect of the reconciliation.

2 Calculated as annualized core net income available for common shareholders divided by average realized common shareholders’ equity (common 

stockholders’ equity excluding "Accumulated other comprehensive income, net of taxes").
81

Table 4. Fannie Mae Balance Sheet

Balance Sheet 

($ in Millions)

Mortgage Backed

 Securities Outstanding 

($ in Millions)

End of 

Period

Total

Assets1

 ($)

1 Beginning in 1998, the guaranty liability for MBS held in the portfolio is classified as a liability.

Total

Retained

Mortgage

Portfolio2

($)

2 Gross retained portfolio net of unamortized purchase premium, discounts and deferred price adjustments.

Non-Mortgage

Investments3

 ($)

3 Prior to 1982 balances primarily composed of U.S. government and agency securities.

Debt

Outstanding

($)

Shareholders’

Equity4

($)

4 GAAP basis.

 Core

Capital 5

($)

5 The sum of common stock, noncumulative preferred stock, paid-in capital and retained earnings. 

Total MBS

Outstanding6

 ($)

6 Total MBS outstanding net of MBS in portfolio.

Multiclass MBS

Outstanding7

($)

7 The majority qualify as REMICs and are also known as structured securitizations. 

4Q02 887,515 797,772 59,844 850,982 16,288 28,079 1,029,456 401,486

3Q02 837,880 758,151 51,221 800,255 14,964 26,484 990,393 404,502

2Q02 826,843 740,806 63,991 788,909 17,730 26,382 945,497 402,330

1Q02 808,122 731,926 56,351 769,775 20,753 25,500 896,310 409,239

Annual Data

2002 887,515 797,772 59,844 850,982 16,288 28,079 1,029,456 401,486

2001 799,948 705,372 74,554 763,467 18,118 25,182 858,867 392,457

2000 675,224 607,602 54,982 642,682 20,838 20,827 706,684 334,508

1999 575,308 522,977 39,751 547,619 17,629 17,876 679,169 335,514

1998 485,146 415,434 58,515 460,291 15,453 15,465 637,143 361,613

1997 391,673 316,592 64,596 369,774 13,793 13,793 579,138 388,360

1996 351,041 286,527 56,606 331,270 12,773 12,773 548,173 339,798

1995 316,550 252,868 57,273 299,174 10,959 10,959 513,230 353,528

1994 272,508 220,815 46,335 257,230 9,541 9,541 486,345 378,733

1993 216,979 190,169 21,396 201,112 8,052 8,052 471,306 381,865

1992 180,978 156,260 19,574 166,300 6,774 Not

Applicable

Before

1993

424,444 312,369

1991 147,072 126,679 9,836 133,937 5,547 355,284 224,806

1990 133,113 114,066 9,868 123,403 3,941 288,075 127,278

1989 124,315 107,981 8,338 116,064 2,991 216,512 64,826

1988 112,258 100,099 5,289 105,459 2,260 170,097 26,660

1987 103,459 93,665 3,468 97,057 1,811 135,734 11,359

1986 99,621 94,123 1,775 93,563 1,182 95,568 Not

Issued

Before

1987

1985 99,076 94,609 1,466 93,985 1,009 54,552

1984 87,798 84,135 1,840 83,719 918 35,738

1983 78,383 75,247 1,689 74,594 1,000 25,121

1982 72,981 69,356 2,430 69,614 953 14,450

1981 61,578 59,629 1,047 58,551 1,080 717

1980 57,879 55,589 1,556 54,880 1,457 Not

Issued

Before

1981

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

Source: Fannie Mae
82

Table4a. Fannie Mae Total MBS Outstanding Detail - Part 1, Single-Family 

Single-Family Mortgages 

($ in Millions)

End of 

Period

Conventional FHA/VA 

FixedRate

($)

AdjustableRate

 ($)

Seconds

($)

Total

($)

FixedRate

($)

AdjustableRate

($)

Total

($)

4Q02 879,113 92,485 338 971,936 5,147 1,262 6,409

3Q02 856,459 79,095 424 935,978 5,554 1,296 6,850

2Q02 820,149 70,900 504 891,553 5,744 1,298 7,042

1Q02 777,056 69,946 615 842,617 5,997 1,239 7,236

Annual Data 

2002 879,113 92,485 338 971,936 5,147 1,262 6,409

2001 737,023 62,617 772 800,412 12,246 1,300 13,546

2000 599,961 61,495 1,165 662,621 6,778 1,298 8,076

1999 586,093 51,474 1,212 638,779 7,159 1,010 8,169

1998 545,680 56,903 98 602,681 5,340 587 5,927

1997 483,982 70,106 7 554,095 3,872 213 4,085

1996 460,866 65,682 9 526,557 4,402 191 4,593

1995 431,755 63,436 13 495,204 5,043 91 5,134

1994 415,692 55,780 18 471,490 5,628 0 5,628

1993 405,383 49,987 28 455,398 7,549 0 7,549

1992 360,619 45,718 43 406,380 9,438 0 9,438

1991 290,038 45,110 89 335,237 11,112 0 11,112

1990 225,981 42,443 121 268,545 11,380 0 11,380

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

Source: Fannie Mae 
83

Table 4a. Fannie Mae Total MBS Outstanding Detail - Part 2, Multifamily 

Multifamily Mortgages 

($ in Millions)

End of 

Period

Conventional

($)

FHA/RHS

($)

Total

Multifamily

($)

Total

MBS Outstanding1

($)

4Q02 50,127 984 51,111 1,029,456

3Q02 46,525 1,040 47,565 990,393

2Q02 45,819 1,083 46,902 945,497

1Q02 45,306 1,151 46,457 896,310

Annual Data 

2002 50,127 984 51,111 1,029,456

2001 43,728 1,181 44,909 858,867

2000 35,207 780 35,987 706,684

1999 31,518 703 32,221 679,169

1998 28,378 157 28,535 637,143

1997 20,824 134 20,958 579,138

1996 16,912 111 17,023 548,173

1995 12,579 313 12,892 513,230

1994 8,908 319 9,227 486,345

1993 8,034 325 8,359 471,306

1992 8,295 331 8,626 424,444

1991 8,599 336 8,935 355,284

1990 7,807 343 8,150 288,075

1989 Not

Available

Before

1990

Not

Available

Before

1990

Not

Available

Before

1990

216,512

1988 170,097

1987 135,734

1986 95,568

1985 54,552

1984 35,738

1983 25,121

1982 14,450

1981 717

Not

 Issued

 Before

1981

Source: Fannie Mae

1 MBS and other mortgage-related securities guranteed by Fannie Mae and held by investors other than Fannie Mae.
84

Table 5. Fannie Mae Retained Mortgage Portfolio Detail

($ in Millions)

End of 

Period

Whole

Loans1

($)

1 Unpaid principal balance.

Fannie Mae

Securities1

($)

Other

MortgageRelated

Securities1

($)

Unamortized Premiums,

Discounts, Deferred Adjustments,

and Unrealized Gains/Losses on

Available-for-Sale Securities 2

($)

2 Beginning in 2002, include unrealized gains/losses on available-for-sale securities.

Total

Retained

Mortgage

Portfolio

($)

4Q02 185,801 508,831 96,168 6,972 797,772

3Q02 179,467 468,552 103,405 6,727 758,151

2Q02 175,756 459,097 105,891 62 740,806

1Q02 171,581 459,094 103,219 (1,968) 731,926

Annual Data

2002 185,801 508,831 96,168 6,972 797,772

2001 165,957 431,484 110,035 (2,104) 705,372

2000 152,505 351,066 106,551 (2,520) 607,602

1999 149,105 281,714 93,122 (964) 522,977

1998 155,779 197,375 61,361 919 415,434

1997 160,102 130,444 26,132 (86) 316,592

1996 167,891 102,607 16,554 (525) 286,527

1995 171,481 69,729 12,301 (643) 252,868

1994 170,909 43,998 7,150 (1,242) 220,815

1993 163,149 24,219 3,493 (692) 190,169

1992 134,597 20,535 2,987 (1,859) 156,260

1991 109,251 16,700 3,032 (2,304) 126,679

1990 101,797 11,758 3,073 (2,562) 114,066

1989 95,729 11,720 3,272 (2,740) 107,981

1988 92,220 8,153 2,640 (2,914) 100,099

1987 89,618 4,226 2,902 (3,081) 93,665

1986 94,167 1,606 2,060 (3,710) 94,123

1985 97,421 435 793 (4,040) 94,609

1984 87,205 477 427 (3,974) 84,135

1983 77,983 Not

Available

Before

1984

273 (3,009) 75,247

1982 71,777 37 (2,458) 69,356

1981 61,411 1 (1,783) 59,629

1980 57,326 1 (1,738) 55,589

1979 51,096 1 (1,320) 49,777

1978 43,315 Not

Available

Before

1979

(1,212) 42,103

1977 34,377 (1,125) 33,252

1976 32,937 (1,162) 31,775

1975 31,916 (1,096) 30,820

1974 29,708 (1,042) 28,666

1973 24,459 (870) 23,589

1972 20,326 (674) 19,652

1971 18,515 (629) 17,886

Source: Fannie Mae
85

Table 5a. Fannie Mae Retained Mortgage Portfolio Detail - Part 1a, Whole Loans

End of Period

Whole Loans1

($ in Millions)

Single-Family

Conventional 

Total FHA/VA

($)

Fixed-Rate

($)

Adjustable-Rate

($)

Seconds

($)

Total

($)

4Q02 157,203 9,045 524 166,772 5,458

3Q02 152,489 8,940 592 162,021 5,289

2Q02 149,164 9,103 692 158,959 5,194

1Q02 144,984 9,475 772 155,231 5,145

Annual Data 

2002 157,203 9,045 524 166,772 5,458

2001 139,023 10,410 917 150,350 5,069

2000 125,657 13,244 480 139,381 4,763

1999 130,488 6,058 176 136,722 4,472

1998 135,351 7,633 206 143,190 4,404

1997 134,543 10,389 268 145,200 4,631

1996 137,507 12,415 323 150,245 4,739

1995 137,032 14,756 423 152,211 4,780

1994 133,882 16,475 537 150,894 4,965

1993 123,308 19,175 772 143,255 5,305

1992 91,500 22,637 1,355 115,492 6,097

1991 69,130 19,763 2,046 90,939 6,962

1990 61,873 19,558 1,851 83,282 8,524

1989 55,638 20,751 1,614 78,003 9,450

1988 53,090 20,004 1,561 74,655 10,480

1987 55,913 13,702 1,421 71,036 11,652

1986 Not

Available

 Before

1987

Not

Available

 Before

1987

Not

Available

 Before

1987

Not

Available

 Before

1987

Not

Available

 Before

1987

Source: Fannie Mae

1 Unpaid principal balance. 
86

Table 5a. Fannie Mae Retained Mortgage Portfolio Detail - Part 1b, Whole Loans

End of Period

Whole Loans1

($ in Millions)

Multifamily

Conventional

($)

FHA/RHS

($)

Total

($)

Total Whole Loans

($)

4Q02 12,217 1,354 13,571 185,801

3Q02 10,761 1,396 12,157 179,467

2Q02 10,158 1,445 11,603 175,756

1Q02 9,699 1,506 11,205 171,581

Annual Data 

2002 12,217 1,354 13,571 185,801

2001 8,987 1,551 10,538 165,957

2000 6,547 1,814 8,361 152,505

1999 5,564 2,347 7,911 149,105

1998 5,590 2,595 8,185 155,779

1997 7,388 2,883 10,271 160,102

1996 9,756 3,151 12,907 167,891

1995 11,175 3,315 14,490 171,481

1994 11,681 3,369 15,050 170,909

1993 11,143 3,446 14,589 163,149

1992 9,407 3,601 13,008 134,597

1991 7,641 3,709 11,350 109,251

1990 6,142 3,849 9,991 101,797

1989 3,926 4,350 8,276 95,729

1988 2,699 4,386 7,085 92,220

1987 2,448 4,482 6,930 89,618

1986 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

Source: Fannie Mae

1 Unpaid principal balance. 
87

Table 5a. Fannie Mae Retained Mortgage Portfolio Detail - Part 2a, Mortgage-Related Securities

Mortgage-Related Securities1 ($ in Millions)

1 Unpaid principal balance.

End of 

Period

Total

Enterprise

Securities

($)

Others’ Securities

Total

Others’

Securities

($)

Freddie

Mac

($)

Ginnie

Mae

($)

Private - Label

Home

Equity2

($)

2 Balances incorporate securities specifically identified as home equity or seconds. Other securities may include some underlying loans 

which are home equity or seconds. 

Manufactured

Housing

($)

Other

($)

Total

Private

Label

($)

4Q02 508,831 32,826 15,587 9,992 9,525 8,600 28,117 76,530

3Q02 468,552 37,397 18,148 11,323 Not

Available

Before

4Q02

17,065 28,388 83,933

2Q02 459,097 39,060 20,005 10,205 17,112 27,317 86,382

1Q02 459,094 39,130 17,198 9,776 18,296 28,072 84,400

Annual Data

2002 508,831 32,826 15,587 9,992 9,525 8,600 28,117 76,530

2001 431,484 42,921 19,138 7,571 Not

Available

Before

2002

22,008 29,579 91,638

2000 351,066 33,290 23,768 9,472 24,794 34,266 91,324

1999 281,714 25,577 23,701 Not

Available

Before

2000

31,673 31,673 80,951

1998 197,375 23,453 8,638 19,585 19,585 51,676

1997 130,444 5,262 7,696 5,554 5,554 18,512

1996 102,607 3,623 4,780 1,486 1,486 9,889

1995 69,729 3,233 2,978 747 747 6,958

1994 43,998 564 3,182 1 1 3,747

1993 24,219 Not

Available

Before

1994

972 2 2 974

1992 20,535 168 3 3 171

1991 16,700 180 93 93 273

1990 11,758 191 352 352 543

1989 11,720 202 831 831 1,033

1988 8,153 26 810 810 836

1987 4,226 Not

Available

Before

1988

1,036 1,036 1,036

1986 1,606 1,591 1,591 1,591

1985 435 Not

Available

Before

1986

Not

Available

Before

1986

Not

Available

Before

1986

1984 477

1983 Not

Available

Before

1984

Source: Fannie Mae
88

Table 5a. Fannie Mae Retained Mortgage Portfolio Detail - Part 2b, Mortgage-Related Securities

End of 

Period

 Mortgage-Related Securities ($ in Millions)

Total

Retained

Mortgage

Portfolio

($)

Mortgage

Revenue

Bonds1

($)

1 Unpaid principal balance.

Total

Mortgage-Related

Securities

($)

Unamortized Premiums,

Discounts, Deferred Adjustments,

and Unrealized Gains/Losses on

Available-for-Sale Securities 2

($)

2 Beginning in 2002, include unrealized gains/losses on available-for-sale securities.

4Q02 19,638 604,999 6,972 797,772

3Q02 19,472 571,957 6,727 758,151

2Q02 19,509 564,988 62 740,806

1Q02 18,819 562,313 (1,968) 731,926

Annual Data

2002 19,638 604,999 6,972 797,772

2001 18,397 541,519 (2,104) 705,372

2000 15,227 457,617 (2,520) 607,602

1999 12,171 374,836 (964) 522,977

1998 9,685 258,736 919 414,434

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) 94,609

1984 (3,974) 84,135

1983 (3,009) 75,247

1982 (2,458) 69,356

1981 (1,783) 59,629

1980 (1,738) 55,589

1979 (1,320) 49,777

1978 (1,212) 42,103

1977 (1,125) 33,252

1976 (1,162) 31,775

1975 (1,096) 30,820

1974 (1,042) 28,666

1973 (870) 23,589

1972 (674) 19,652

1971 (629) 17,886

Source: Fannie Mae
89

Table 6. Fannie Mae Derivatives

Financial Derivatives - Notional Amount Outstanding

($ in Millions)

End of 

Period

Interest

Rate

Swaps

($)

Interest

Rate Caps,

Floors, and

Corridors

($)

Foreign

Currency

Contracts

($)

OTC

Futures,

Options

and

Forward

Rate

Agreements

($)

ExchangeTraded

Futures,

Options,

and Other

Derivatives

($)

Other

($)

 Total

($)

4Q02 246,508 122,393 4,109 283,675 0 0 656,595

3Q02 291,655 104,493 4,036 228,425 0 0 628,609

2Q02 333,533 89,693 4,977 166,290 0 0 594,493

1Q02 315,030 84,543 8,496 158,192 0 0 566,261

Annual Data

2002 246,508 122,393 4,019 283,675 0 0 656,595

2001 299,953 75,893 8,493 148,800 0 0 533,139

2000 227,651 33,663 9,511 53,915 0 0 324,740

1999 192,032 28,950 11,507 41,081 0 1,400 274,970

1998 142,846 14,500 12,995 13,481 0 3,735 187,557

1997 149,673 100 9,968 0 0 1,660 161,401

1996 158,140 300 2,429 0 0 350 161,219

1995 125,679 300 1,224 29 0 975 128,207

1994 87,470 360 1,023 0 0 1,465 90,317

1993 49,458 360 1,023 0 0 1,425 52,265

1992 24,130 0 1,177 0 0 1,350 26,658

1991 9,100 0 Not

Available

Before

1992

50 0 1,050 10,200

1990 4,800 0 25 0 1,700 6,525

Source: Fannie Mae
90

Table 7. Fannie Mae Non-Mortgage Investments

 Non-Mortgage Investments1 ($ in Millions)

1 Prior to 1982, the majority of non-mortgage investments was comprised of U.S. government securities and agency securities.

End of 

Period

 Federal Funds

and Eurodollars

($)

Asset Backed

Securities

($)

Repurchase

Agreements

($)

Commercial

Paper and

Corporate Debt

($)

Other

($)

 Total

($)

4Q02 1,548 22,311 20,732 14,075 1,178 59,844

3Q02 5,768 20,988 7,522 14,903 2,040 51,221

2Q02 9,828 23,416 3,176 19,901 7,670 63,991

1Q02 5,281 21,921 6,234 18,324 4,591 56,351

Annual Data

2002 1,548 22,311 20,732 14,075 1,178 59,844

2001 16,089 20,937 9,380 23,805 4,343 74,554

2000 7,539 17,512 2,722 8,893 18,316 54,982

1999 4,837 19,207 2,574 1,723 11,410 39,751

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 1,462 0 0 0 227 1,689

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

Source: Fannie Mae
91

Table 8. Fannie Mae Asset - Liability Mix

Asset - Liability Ratios 

Asset Mix Liability Mix

End of 

Period

Total Retained Portfolio /

Total Assets

(%)

Non-Mortgage Investments/

Total Assets

(%)

Callable Debt / Total

Effective Long-Term Debt1

(%)

1 Callable debt includes derivative financial instruments that provide interest-rate protection similar to callable debt.

Total Effective LongTerm Debt /Total Debt2

 (%)

2 Total effective long-term debt represents debt with an effective repricing date greater than one year.

4Q02 89.9 6.7 53.7 76.6

3Q02 90.5 6.1 47.9 82.1

2Q02 89.6 7.7 38.5 87.0

1Q02 90.6 7.0 37.9 85.3

Annual Data

2002 89.9 6.7 53.7 76.6

2001 88.2 9.3 37.1 82.2

2000 90.0 8.1 42.9 84.6

1999 90.9 6.9 43.4 87.1

1998 85.6 12.1 42.9 76.4

1997 80.8 16.5 46.4 79.4

1996 81.6 16.1 47.5 80.5

1995 79.9 18.1 48.0 73.9

1994 81.0 17.0 54.6 72.6

1993 87.6 9.9 58.1 80.0

1992 86.3 10.8 48.8 77.9

1991 86.1 6.7 36.0 85.5

1990 85.7 7.4 21.9 82.6

1989 86.9 6.7 10.1 80.1

1988 89.2 4.7 3.6 78.7

1987 90.5 3.4 Not

Available

Before

1988

 Not

Available

Before

1988

1986 94.5 1.8

1985 95.5 1.5

1984 95.8 2.1

1983 96.0 2.2

1982 95.0 3.3

1981 96.8 1.7

1980 96.0 2.7

1979 97.0 1.6

1978 96.8 1.9

1977 97.9 0.9

1976 98.1 0.8

1975 97.5 0.8

1974 96.6 1.6

1973 97.0 1.0

1972 96.6 1.3

1971 96.2 1.8

Source: Fannie Mae
92

Table 9. Fannie Mae Mortgage Asset Quality

Mortgage Asset Quality 

End of 

Period

Single-Family

Delinquency

Rate1

(%)

1 Beginning with 1998, data include all seriously delinquent conventional loans with and without third party enhancement. Prior to 1998, data include 

loans for which Fannie Mae has primary risk of loss. Data prior to 1992 include loans in relief or bankruptcy, even if they are less than 90 days 

delinquent.

Multifamily

Delinquency

Rate2

(%)

2 Beginning in 1998, data include all loans that are two or more months delinquent. Data prior to 1998 include loans for which Fannie Mae has 

primary risk of loss.

Credit Losses /Total

MBS Outstanding

plus Retained

Portfolio3

(%)

3 Credit losses are charge-offs plus real estate owned expense; average balances used to calculate ratios subsequent to 1994; quarterly data are 

annualized.

REO / Total MBS

Outstanding

plus Retained

Portfolio4

(%)

4 Real Estate Owned balances reflect end-of-period amounts. Beginning with 1995, data reflect adoption of SFAS 114.

Credit-Enhanced

Outstanding / Total

MBS Outstanding plus

Retained Portfolio5

(%)

5 Beginning in 2000, "credit enhanced" is expanded to include primary mortgage insurance. Prior to 2000, reflect proportion of the retained portfolio 

with additional recourse from a third party to accept some or all of the expected losses on defaulted mortgages.

4Q02 0.57 0.05 0.01 0.06 29.6

3Q02 0.53 0.08 0.00 0.05 31.7

2Q02 0.49 0.12 0.00 0.05 32.9

1Q02 0.53 0.24 0.01 0.05 33.3

Annual Data

2002 0.57 0.05 0.01 0.06 29.6

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

Source: Fannie Mae
93

Table 10. Fannie Mae Capital

Capital ($ in Millions)

End of 

Period

Core

Capital

($)

Regulatory

Minimum Capital

Requirement1

($)

1 Minimum capital requirement in accordance with the Federal Housing Enterprises Financial Safety and Soundness Act of 1992.

Regulatory

Capital

Surplus

(Deficit)2

($)

2 The difference between Core Capital and Minimum Regulatory Capital Requirement.

Market

Capitalization3

 ($)

3 Stock price multiplied by number of outstanding common shares.

Core Capital /

Total Assets

(%)

Core Capital /

Outstanding

MBS plus Total

Assets

(%)

Common Share

Dividend

Payout Rate4

(%)

4 Common dividends paid as a percentage of core net income available to common shareholders.

4Q02 28,079 27,203 877 63,612 3.16 1.46 19.8

3Q02 26,484 25,756 729 58,869 3.16 1.45 20.3

2Q02 26,382 25,227 1,155 73,217 3.19 1.49 21.2

1Q02 25,500 24,571 929 79,523 3.16 1.50 22.1

Annual Data

2002 28,079 27,203 877 63,612 3.16 1.46 20.8

2001 25,182 24,182 1,000 79,281 3.15 1.52 23.0

2000 20,827 20,294 533 86,643 3.08 1.51 26.0

1999 17,876 17,770 106 63,651 3.11 1.42 28.8

1998 15,465 15,334 131 75,881 3.19 1.38 29.5

1997 13,793 12,703 1,090 59,167 3.52 1.42 29.4

1996 12,773 11,466 1,307 39,932 3.64 1.42 30.4

1995 10,959 10,451 508 33,812 3.46 1.32 34.6

1994 9,541 9,416 126 19,882 3.50 1.26 30.8

1993 8,052 7,876 176 21,387 3.71 1.17 26.8

1992 Not

Applicable

Before

1993

Not

Applicable

Before

1993

Not

Applicable

Before

1993

20,874 Not

Applicable

Before

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 Not Applicable

1983 1,514 13.9

1982 1,603 Not Applicable

1981 502 Not Applicable

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

Source: Fannie Mae and OFHEO
94

Table 11. Freddie Mac Mortgage Purchases

Business Activity ($ Millions)

Purchases

Period

 Single-Family

($)

 Multifamily

($) Total Mortgages1

($)

1 Loans purchased from lenders; excluding non-Freddie Mac mortgage securities and repurchased Freddie Mac MBS.

 Mortgage Securities2

($)

2 Not included in total mortgage purchases.

4Q02 196,909 5,487 202,396 98,932

3Q02 113,207 1,971 115,178 59,671

2Q02 101,004 1,632 102,636 32,054

1Q02 136,580 1,566 138,146 72,849

Annual Data

2002 547,700 10,656 558,356 263,506

2001 393,155 9,509 402,664 230,914

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

Source: Freddie Mac
95

Table 11a. Freddie Mac Mortgage Purchases Detail, by Type of Loan - Part 1, Single-Family

Period

Purchases1

($ in Millions)

1 Loans purchased from lenders; excluding non-Freddie Mac mortgage securities and repurchased Freddie Mac MBS. 

Single-Family Mortgages2

2 Data are partially estimated.

Conventional FHA/VA

Fixed-Rate

($)

AdjustableRate

($)

Seconds

($)

Total

($)

Fixed-Rate

($)

AdjustableRate

($)

Total

($)

Total

SingleFamily

Mortgages

($)

4Q02 182,855 13,694 0 196,549 360 0 360 196,909

3Q02 100,556 12,357 0 112,913 294 0 294 113,207

2Q02 91,383 9,510 0 100,893 111 0 111 101,004

1Q02 127,144 9,356 0 136,500 80 0 80 136,580

Annual Data 

2002 501,938 44,917 0 546,855 845 0 845 547,700

2001 370,661 22,206 0 392,867 288 0 288 393,155

2000 145,744 21,201 0 166,945 1,068 0 1,068 168,013

1999 224,040 7,443 0 231,483 1,129 0 1,129 232,612

1998 256,008 7,384 0 263,392 98 0 98 263,490

1997 106,174 8,950 0 115,124 36 0 36 115,160

1996 116,316 6,475 0 122,791 59 0 59 122,850

1995 75,867 14,099 0 89,966 5 0 5 89,971

1994 105,902 16,646 0 122,548 15 0 15 122,850

1993 208,322 20,708 1 229,031 20 0 20 229,051

1992 175,515 15,512 7 191,034 65 0 65 191,099

1991 91,586 7,793 206 99,585 144 0 144 99,729

1990 56,806 16,286 686 73,778 402 0 402 74,180

1989 57,100 17,835 1,206 76,141 624 0 624 76,765

1988 34,737 7,253 59 42,049 835 0 835 42,884

1987 69,148 4,779 69 73,996 828 0 828 74,824

1986 96,105 2,262 90 98,457 1,479 0 1,479 99,936

1985 40,226 605 34 40,865 1,245 0 1,245 42,110

Source: Freddie Mac
96

Table 11a. Freddie Mac Mortgage Purchases Detail, By Type of Loan - Part 2, Multifamily

Purchases1

($ in Millions)

End of 

Period

Multifamily Mortgages 

Conventional

($)

FHA/RHS

($)

Total Multifamily

Mortgages

($)

Total

Mortgage

Purchases

($)

4Q02 5,487 0 5,487 202,396

3Q02 1,971 0 1,971 115,178

2Q02 1,632 0 1,632 102,636

1Q02 1,566 0 1,566 138,146

Annual Data 

2002 10,656 0 10,656 558,356

2001 9,506 3 9,509 402,664

2000 6,030 Not

Available

Before

2001

6,030 174,043

1999 7,181 7,181 239,793

1998 3,910 3,910 267,400

1997 2,241 2,241 117,401

1996 2,229 2,229 125,079

1995 1,565 1,565 91,536

1994 847 847 123,410

1993 191 191 229,242

1992 27 27 191,126

1991 236 236 99,965

1990 1,338 1,338 75,518

1989 1,824 1,824 78,589

1988 1,191 1,191 44,075

1987 2,016 2,016 76,840

1986 3,538 3,538 103,474

1985 1,902 1,902 44,012

Source: Freddie Mac

1 Loans purchased from lenders; excluding non-Freddie Mac mortgage securities and repurchased Freddie Mac MBS. 
97

Table 11b. Freddie Mac Purchases of Mortgage-Related Securities

Purchases ($ in Millions)

End of 

Period

Enterprise

Securities

($)

Others’ Securities

Mortgage

Revenue

Bonds

 ($)

Total

MortgageRelated

Securities

($)

Fannie

Mae1

($)

1 Data for 1997 through 1999 are estimated.

Ginnie

Mae

($)

Private - Label1

Home

Equity

($)

Manufactured

Housing

($)

Other

($)

Total

Private

($)

4Q02 62,126 16,957 12 12,046 0 7,524 19,570 267 98,932

3Q02 37,828 12,074 575 2,910 0 6,098 9,008 186 59,671

2Q02 20,010 1,955 35 8,113 0 1,728 9,841 213 32,054

1Q02 59,501 4,860 952 6,850 0 490 7,340 196 72,849

Annual Data

2002 179,465 35,846 1,574 29,919 0 15,840 45,759 862 263,506

2001 158,487 57,551 2,195 6,043 0 5,930 11,973 708 230,914

2000 58,516 18,249 3,339 4,865 15 5,424 10,304 1,488 91,896

1999 69,219 12,392 3,422 7,931 3,293 4,039 15,263 1,602 101,898

1998 107,508 3,126 319 5,872 1,630 8,209 15,711 1,782 128,446

1997 31,296 897 326 374 36 1,084 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

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
98

Table 12. Freddie Mac MBS Issuances

Business Activity ($ in Millions)

MBS Issuances

Period

 Single-Family MBS

($)

 Multifamily MBS

($)

Total MBS

($)

 Multiclass MBS1

($)

1 The majority qualify as Real Estate Mortgage Investment Conduits (REMICs), and are also known as structured securitizations. 

In years 1983 - 1986, data consist of collateralized mortgage obligations (CMOs) and mortgage cash flow obligations (MCFs). 

4Q02 192,756 3,298 196,054 106,895

3Q02 110,459 182 110,641 76,069

2Q02 101,224 78 101,302 71,490

1Q02 139,011 38 139,049 77,721

Annual Data

2002 543,450 3,596 547,046 331,675

2001 387,255 2,356 389,611 192,437

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

Source: Freddie Mac
99

Table 13. Freddie Mac Earnings1

1 Freddie Mac has announced that it intends to restate certain financial results for 2002 and prior periods. Restatement of such financial results may affect 

some of the information presented in this table. 

Earnings ($ in Millions)

Period

Operating Net

 Interest Income2, 3, 4

($)

2 Interest income net of interest expense, nominal basis, adjusted to remove FAS 133 effects starting in 2001. 

3 Effective 1/1/96, Freddie Mac reports guarantee fees on retained MBS as guarantee fee income. However, in these data, fees on retained MBS have been 

estimated and reclassified as interest income for comparability with Fannie Mae.

4 In 1993, Freddie Mac adopted a change in reporting of uncollectible interest on single-family mortgages. Pre-1993 amounts do not reflect this change.

Guarantee Fee

Income 3,4

($)

Average

Guarantee Fee 3,4

(basis points)

Administrative

Expenses5

($)

5 Data for 4Q02 and 2002 do not reflect $225 million cash contribution to Freddie Mac’s philanthropic program. 

Credit-related

Expenses6

($)

6 Credit-related expenses are mortgage loan loss provision plus real estate owned expense. From 1988 to 1990, data include real estate owned disposition 

loss provisions instead of expense, and before 1988, only mortgage loan loss provision.

Operating Net

Income 7

($)

7 Net income adjusted to remove FAS 133 effects starting in 2001.

4Q02 1,352 335 18.5 280 (8) 846

3Q02 1,451 335 18.6 208 (294) 1,147

2Q02 1,445 325 18.5 204 (4) 968

1Q02 1,444 303 18.5 228 24 893

Annual Data

2002 5,692 1,298 18.5 920 (282) 3,854

2001 4,444 1,127 18.7 844 84 3,154

2000 3,270 1,057 19.3 713 106 2,547

1999 2,926 1,019 19.8 655 159 2,223

1998 2,215 1,019 21.4 578 342 1,700

1997 1,847 1,082 22.9 495 529 1,395

1996 1,705 1,086 23.4 440 608 1,243

1995 1,396 1,087 23.8 395 541 1,091

1994 1,112 1,108 24.4 379 425 983

1993 772 1,009 23.8 361 524 786

1992 695 936 24.7 329 457 622

1991 683 792 23.7 287 419 555

1990 619 654 22.4 243 474 414

1989 517 572 23.4 217 278 437

1988 492 465 21.5 194 219 381

1987 319 472 24.2 150 175 301

1986 299 301 22.4 110 120 247

1985 312 188 22.1 81 79 208

1984 213 158 24.7 71 54 144

1983 125 132 26.2 53 46 86

1982 30 77 24.5 37 26 60

1981 34 36 19.5 30 16 31

1980 54 23 14.3 26 23 34

1979 55 18 13.2 19 20 36

1978 37 14 14.9 14 13 25

1977 31 9 18.9 12 8 21

1976 18 3 13.6 10 (1) 14

1975 31 3 24.8 10 11 16

1974 42 2 25.5 8 33 5

1973 31 2 32.4 7 15 12

1972 10 1 39.4 5 4 4

1971 10 1 Not Available

Before 1972

Not Available

Before 1972

Not Available

Before 1972

6

Source: Freddie Mac
100

Table 13a. Freddie Mac Earnings1

Earnings ($ in Millions)

Period

Net

Income

($)

Remove

 Certain FAS 133

Hedged Item

Amortization

($)

Include

Straight-line Option

Premium

Amortization

($)

Remove

FAS 133

"Fair Value

Gains (Losses)"

($)

Other2

($)

Tax

Effects of

Preceeding

Adjustments

($)

Cumulative

Gain on

Adoption of

FAS 133

($)

Operating

Net

Income3

($)

Return on

Adjusted

Common

Equity4

(%)

4Q02 1,703 (5) (481) (353) (480) 462 0 846 30.2

3Q02 1,538 (46) (468) (18) (70) 211 0 1,147 29.6

2Q02 1,110 134 (403) 115 (65) 77 0 968 27.9

1Q02 1,413 (4) (425) (240) (130) 279 0 893 16.6

Annual Data

2002 5,764 79 (1,777) (496) (745) 1,029 0 3,854 26.1

2001 4,147 (519) (1,029) 27 0 533 (5) 3,154 23.1

2000 2,547 Not

Applicable

Before

2001

Not

Applicable

Before

2001

Not

Applicable

Before

2001

Not

Applicable

Before

2001

Not

Applicable

Before

2001

Not

Applicable

Before

2001

2,547 23.7

1999 2,223 2,223 25.5

1998 1,700 1,700 22.6

1997 1,395 1,395 23.1

1996 1,243 1,243 22.6

1995 1,091 1,091 22.1

1994 983 983 23.3

1993 786 786 22.3

1992 622 622 21.2

1991 555 555 23.6

1990 414 414 20.4

1989 437 437 25.0

1988 381 381 27.5

1987 301 301 28.2

1986 247 247 28.5

1985 208 208 30.0

1984 144 144 52.0

1983 86 86 44.5

1982 60 60 21.9

1981 31 31 13.1

1980 34 34 14.7

1979 36 36 16.2

1978 25 25 13.4

1977 21 21 12.4

1976 14 14 9.5

1975 16 16 11.6

1974 5 5 4.0

1973 12 12 9.9

1972 4 4 3.5

1971 6 6 5.5

Source: Freddie Mac

1 Freddie Mac has announced that it intends to restate certain financial results for 2002 and prior periods. Restatement of such financial results may affect some of 

the information presented in this table. 

2 Reflects accounting differences between GAAP and operating income arising from repurchases of hedged debt, sales of hedged assets, sales of options, and other 

adjustments. 

3 Reported net income adjusted to remove FAS 133 effects starting in 2001.

4 Annual computation reflects the simple average of quarterly returns. Calculated as annualized operating earnings available for common shareholders divided by 

average realized common stockholders’ equity (common stockholders’ equity excluding "Accumulated other comprehensive income, net of taxes").
101

Table 14. Freddie Mac Balance Sheet1

1 Freddie Mac has announced that it intends to restate certain financial results for 2002 and prior periods. Restatement of such financial results may affect some of the 

information presented in this table. 

Balance Sheet ($ in Millions)

Mortgage-Backed Securities 

Outstanding ($ in Millions)

End of 

Period

 Total

Assets

 ($)

Total Retained

Mortgage Portfolio2

($)

2 Unpaid principal balance plus net unamortized premiums, discounts, deferred fees and unrealized gains and losses on available-for-sale mortgage-related securities.

Non-Mortgage

Investments3

($)

3 Excludes mortgage-related securities held for trading purposes. 

Debt

Outstanding

 ($)

Shareholders’

Equity4

($)

4 GAAP basis. 

Core

Capital5

($)

5 The sum of common stock, noncumulative preferred stock, paid-in capital and retained earnings. 

Total MBS

Outstanding6

($)

6 Total MBS outstanding net of repurchased MBS in retained portfolio. 

Multiclass MBS

Outstanding7

 ($)

7 The majority qualify as REMICs and are also known as structured securitizations. In years 1983 - 1999, data also include original issue CMOs and MCFs, and 

structured securitizations and PCs with mandatory purchase obligations. 

4Q02 721,739 583,423 69,393 648,894 24,629 23,792 742,868 474,375

3Q02 681,980 542,568 80,060 623,267 22,566 22,656 730,341 469,445

2Q02 644,013 525,200 70,897 601,363 17,934 21,446 725,226 445,538

1Q02 646,397 527,962 78,652 603,446 15,865 20,558 677,064 407,007

Annual Data

2002 721,739 583,423 69,393 648,894 24,629 23,792 742,868 474,375

2001 617,340 494,585 77,444 565,071 15,373 19,336 646,448 373,552

2000 459,297 385,451 43,521 426,899 14,837 14,380 576,101 309,185

1999 386,684 322,914 34,152 360,711 11,525 12,692 537,883 316,168

1998 321,421 255,670 42,160 287,396 10,835 10,715 478,351 260,504

1997 194,597 164,543 16,430 172,842 7,521 7,376 475,985 233,829

1996 173,866 137,826 22,248 156,981 6,731 6,743 473,065 237,939

1995 137,181 107,706 12,711 119,961 5,863 5,829 459,045 246,366

1994 106,199 73,171 17,808 93,279 5,162 5,169 460,656 264,152

1993 83,880 55,938 18,225 49,993 4,437 4,437 439,029 265,178

1992 59,502 33,629 12,542 29,631 3,570 Not

Applicable

Before

1993

407,514 218,747

1991 46,860 26,667 9,956 30,262 2,566 359,163 146,978

1990 40,579 21,520 12,124 30,941 2,136 316,359 88,124

1989 35,462 21,448 11,050 26,147 1,916 272,870 52,865

1988 34,352 16,918 14,607 26,882 1,584 226,406 15,621

1987 25,674 12,354 10,467 19,547 1,182 212,635 3,652

1986 23,229 13,093 Not

Available

Before

 1987

15,375 953 169,186 5,333

1985 16,587 13,547 12,747 779 99,909 5,047

1984 13,778 10,018 10,999 606 70,026 3,214

1983 8,995 7,485 7,273 421 57,720 1,669

1982 5,999 4,679 4,991 296 42,952 Not

Issued

Before

 1983

1981 6,326 5,178 5,680 250 19,897

1980 5,478 5,006 4,886 221 16,962

1979 4,648 4,003 4,131 238 15,316

1978 3,697 3,038 3,216 202 12,017

1977 3,501 3,204 3,110 177 6,765

1976 4,832 4,175 4,523 156 2,765

1975 5,899 4,878 5,609 142 1,643

1974 4,901 4,469 4,684 126 780

1973 2,873 2,521 2,696 121 791

1972 1,772 1,726 1,639 110 444

1971 1,038 935 915 107 64

Source: Freddie Mac
102

Table 14a. Freddie Mac Total MBS Outstanding Detail

End of 

Period

Single-Family Mortgages ($ in Millions) Multifamily Mortgages ($ in Millions) 

Conventional

Total

FHA/VA1

($)

1 All fixed-rate.

Conventional

($)

FHA/RHS

($)

Multifamily

Mortgages

($)

Total MBS

Outstanding2

($)

2 Total MBS outstanding net of MBS held in the retained portfolio.

FixedRate

($)

AdjustableRate

 ($)

Seconds

($)

Total

($)

4Q02 709,009 23,984 5 732,998 1,090 8,780 0 8,780 742,868

3Q02 703,096 19,330 6 722,432 924 6,985 0 6,985 730,341

2Q02 700,980 16,460 7 717,447 792 6,987 0 6,987 725,226

1Q02 657,256 119,88 9 669,253 763 7,048 0 7,048 677,064

Annual Data

2002 709,009 23,984 5 732,998 1,090 8,780 0 8,780 742,868

2001 602,376 35,852 10 638,238 734 7,476 0 7,476 646,448

2000 533,331 36,266 18 569,615 778 5,708 0 5,708 576,101

1999 499,671 33,094 29 532,794 627 4,462 0 4,462 537,883

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

1997 475,985

1996 473,065

1995 459,045

1994 460,656

1993 439,029

1992 407,514

1991 359,163

1990 316,359

1989 272,870

1988 226,406

1987 212,635

1986 169,186

1985 99,909

1984 70,026

1983 57,720

1982 42,952

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
103

Table 15. Freddie Mac Retained Mortgage Portfolio Detail

 ($ in Millions)

End of 

Period

Whole Loans

($)

Freddie Mac

Securities

($)

Other

Mortgage-Related

Securities

($)

Total Retained

Mortgage Portfolio1

($)

4Q02 63,887 339,194 180,342 583,423

3Q02 60,934 327,835 153,799 542,568

2Q02 58,872 328,035 138,293 525,200

1Q02 59,624 335,414 132,924 527,962

Annual Data

2002 63,887 339,194 180,342 583,423

2001 62,792 301,961 129,832 494,585

2000 59,240 246,209 80,002 385,451

1999 56,676 211,198 55,040 322,914

1998 57,084 168,108 30,478 255,670

1997 48,454 103,400 12,689 164,543

1996 46,504 81,195 11,127 137,826

1995 43,753 56,006 7,947 107,706

1994 Not

Available

Before

1995

30,670 Not

Available

Before

1995

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

Source: Freddie Mac

1 Unpaid principal balance plus net unamortized premiums, discounts, deferred fees and unrealized gains or losses on available-for-sale mortgagerelated securities.
104

Table 15a. Freddie Mac Retained Mortgage Portfolio Detail - Part 1a, Whole Loans

Whole Loans1 ($ in Millions)

1 Unpaid principal balance. 

Single-Family

End of 

Period

Conventional Total FHA/VA

($)

Fixed-Rate

($)

Adjustable-Rate

($)

Seconds

($)

Total

($)

4Q02 33,817 1,321 3 35,141 710

3Q02 32,825 1,019 3 33,847 769

2Q02 32,262 969 4 33,235 828

1Q02 34,017 1,040 5 35,062 894

Annual Data

2002 33,817 1,321 3 35,141 710

2001 37,552 1,787 6 39,345 964

2000 39,537 2,125 9 41,671 1,200

1999 43,210 1,020 14 44,244 77

1998 47,754 1,220 23 48,997 109

1997 40,967 1,478 36 42,481 148

Not

Available

Before

1997

Not

Available

Before

1997

Not

Available

Before

1997

Not

Available

Before

1997

Not

Available

Before

1997

Source: Freddie Mac
105

Table 15a. Freddie Mac Retained Mortgage Portfolio Detail - Part 1b, Whole Loans

Whole Loans ($ in Millions) 

Multifamily 

End of 

Period

Conventional

 ($)

FHA/RHS

($)

Total

 ($)

Total Whole Loans

 ($)

4Q02 28,033 3 28,036 63,887

3Q02 26,315 3 26,318 60,934

2Q02 24,806 3 24,809 58,872

1Q02 23,665 3 23,668 59,624

Annual Data

2002 28,033 3 28,036 63,887

2001 22,480 3 22,483 62,792

2000 16,369 Not

Available

Before

2001

16,369 59,240

1999 12,355 12,355 56,676

1998 7,978 7,978 57,084

1997 5,825 5,825 48,454

1996 4,746 4,746 46,504

1995 3,852 3,852 43,753

1994 Not

Available

Before

1995

Not

Available

Before

1995

Not

Available

Before

1995

Source: Freddie Mac
106

Table 15a. Freddie Mac Retained Mortgage Portfolio Detail - Part 2a, Mortgage-Related Securities

 Mortgage-Related Securities ($ in Millions)

Others’ Securities

Total

Enterprise

Securities

($)

Fannie

 Mac

($)

Ginnie

Mae

($)

Private - Label

Total

Others’

Securities

($)

Home

Equity

($)

Manufactured

Housing

($)

Other

($)

Total

PrivateLabel

($)

End of 

Period

4Q02 339,194 76,990 6,360 39,198 2,189 32,713 74,100 157,450

3Q02 327,835 69,995 7,030 31,140 2,241 24,001 57,382 134,407

2Q02 328,035 63,046 7,005 29,500 2,309 22,583 54,392 124,443

1Q02 335,414 68,816 7,476 23,604 2,396 21,417 47,417 123,709

Annual Data

2002 339,194 76,990 6,360 39,198 2,189 32,713 74,100 157,450

2001 301,961 69,972 7,330 18,352 2,489 21,524 42,365 119,667

2000 246,209 28,303 8,991 15,393 2,896 17,708 35,997 73,291

1999 211,198 13,245 6,615 13,808 4,693 12,518 31,019 50,879

1998 168,108 3,749 4,458 5,923 1,711 9,336 16,970 25,177

1997 103,400 Not

Available

Before

1998

6,393 Not

Available

Before

1998

Not

Available

Before

1998

Not

Available

Before

1998

Not

Available

Before

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

1991 Not

Available

Before

1992

1990

1989

Source: Freddie Mac
107

Table 15a. Freddie Mac Retained Mortgage Portfolio Detail - Part 2b, Mortgage-Related Securities

End of 

Period

 Mortgage-Related Securities 

($ in Millions)

Total Mortgage-Related

Securities

($)

Total

Retained

Mortgage

Portfolio1

($)

1 Unpaid principal balance plus net unamortized premiums, discounts, deferred fees, and unrealized gains and losses on available-for-sale mortgage-related 

securities.

Mortgage Revenue

Bonds

($)

Premiums, Discounts, Deferred Fees,

Plus Unrealized Gains/Losses on

Available-for-Sale Securities

($)

4Q02 7,642 15,250 519,536 583,423

3Q02 7,518 11,874 481,634 542,568

2Q02 7,467 6,383 466,328 525,200

1Q02 7,360 1,855 468,338 527,962

Annual Data

2002 7,642 15,250 519,536 583,423

2001 7,299 2,866 431,793 494,585

2000 6,953 (242) 326,211 385,451

1999 5,690 (1,529) 266,238 322,914

1998 4,640 661 198,586 255,670

1997 3,031 122 Not

Available

Before

1998

164,543

1996 1,787 71 137,826

1995 Not

Available

Before

1996

282 107,706

1994 Not

Available

Before

1995

73,171

1993 55,938

1992 33,629

1991 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

Source: Freddie Mac
108

Table 16. Freddie Mac Financial Derivatives

 Financial Derivatives1 - Notional Amount Outstanding 

($ in Millions)

End of 

Period

Interest

Rate

Swaps

($)

Interest

Rate Caps,

Floors,

and

Corridors

($)

TreasuryBased

Contracts

($)

Foreign

Currency

Contracts

($)

 OTC

Futures,

Options,

Forward

Rate

Agreements

($)

ExchangeTraded

Futures,

Options,

and Other

Derivatives

($)

Other

($)

Total

($)

4Q02 290,093 11,663 16,540 43,687 277,416 226,891 500 866,790

3Q02 306,341 11,773 19,477 39,328 207,819 92,129 0 676,867

2Q02 302,995 11,825 14,788 35,423 226,249 108,561 4,639 704,480

1Q02 355,051 11,991 17,229 28,274 204,544 333,766 4,976 955,831

Annual Data

2002 290,093 11,663 16,540 43,687 277,416 226,891 500 866,790

2001 442,769 12,178 13,468 23,995 187,487 369,695 2,802 1,052,394

2000 277,888 12,819 2,200 10,208 113,064 22,517 35,839 474,535

1999 126,580 19,936 8,894 1,097 172,750 94,987 0 424,244

1998 57,555 21,845 11,542 1,464 63,000 157,832 0 313,238

1997 54,172 21,995 12,228 1,152 6,000 0 0 95,547

1996 46,646 14,095 651 544 0 0 0 61,936

1995 45,384 13,055 24 0 0 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

1 Excluded from this table are notional amounts for credit risk sharing agreements. Also excluded from this table are certain commitments to purchase and 

sell mortgages and mortgage-related securities, which are subject to the requirements of Statement of FInancial Accounting Standards No. 133, as 

amended ("SFAS 133").
109

Table 17. Freddie Mac Non-Mortgage Investments

Non-Mortgage Investments1 ($ in Millions)

End of 

Period

Federal Funds

and Eurodollars

 ($)

Asset Backed

Securities

($)

Repurchase

Agreements

($)

Commercial

Paper and

Corporate Debt

($)

Other

($)

Total

($)

4Q02 6,090 34,699 9,174 11,988 7,442 69,393

3Q02 15,349 32,423 8,970 13,868 9,450 80,060

2Q02 10,750 26,420 8,326 13,363 12,038 70,897

1Q02 10,350 26,142 15,907 14,051 12,202 78,652

Annual Data

2002 6,090 34,699 9,174 11,988 7,442 69,393

2001 15,846 26,253 5,531 21,424 8,390 77,444

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

Source: Freddie Mac

1 Excludes mortgage-related securities held for trading purposes.
110 

Table 18. Freddie Mac Asset Mix1

1 Freddie Mac has announced that it intends to restate certain financial 

results for 2002 and prior periods. Restatement of such financial results 

may affect some of the information presented in this table. 

Asset Ratios

End of 

Period

Total Retained

Mortgage Portfolio /

Total Assets

(%)

Non-Mortgage

Investments /

Total Assets

(%)

4Q02 80.8 9.6

3Q02 79.6 11.7

2Q02 81.6 11.0

1Q02 81.8 12.2

Annual Data

2002 80.8 9.6

2001 80.1 12.5

2000 83.9 9.5

1999 83.5 8.8

1998 79.5 13.1

1997 84.6 8.4

1996 79.3 12.8

1995 78.5 9.3

1994 68.9 16.8

1993 66.7 21.7

1992 56.5 21.1

1991 56.9 21.2

1990 53.0 29.9

1989 60.5 31.2

1988 49.2 42.5

1987 48.1 40.8

1986 56.4 Not

Available

Before

1987

1985 81.7

1984 72.7

1983 83.2

1982 78.0

1981 81.9

1980 91.4

1979 86.1

1978 82.2

1977 91.4

1976 86.1

1975 82.2

1974 91.5

1973 87.7

1972 97.4

1971 90.1

Source: Freddie Mac
111

Table 19. Freddie Mac Mortgage Asset Quality

Mortgage Asset Quality 

End of 

Period

Single-Family

 Delinquency

Rate1

(%)

1 Based on number of mortgages 90 days or more delinquent or in foreclosure. 1994 - 2002 data include only loans for which Freddie Mac has 

assumed primary default risk (“at-risk”) plus loans covered by primary mortgage insurance. Excludes non-Freddie Mac mortgage securities, 

securities subject to subordination agreements and loans for which the lender or a thrid party has retained primary default risk by pledging collateral 

or agreeing to accept losses on loans that default. In some cases, the lender’s or third party’s risk is limited to a specific level of losses at the time 

the credit enhancement befcomes effective. Pre-1994 calculations include both at-risk and non-at-risk loans.

Multifamily

Delinquency

Rate2,3

(%)

2 1982 - 1987 data based on the number of loans delinquent 60 days or more; calculations subsequent to 1987 based on unpaid principal balance of 

loans 60 days or more or in foreclosure. 

3 Pre-1991 amounts do not reflect change in reporting of multifamily in-substance foreclosures pursuant to adoption of SFAS 114.

Credit Losses / Total

MBS Outstanding plus

Retained Portfolio4

(%)

4 Credit losses equal to charge-offs plus "REO operations (income) expense." Average balances used to calculate ratios subsequent to 1994; 

quarterly data are annualized.

REO / Total MBS

Outstanding plus

Retained Portfolio5

(%)

5 Beginning with 1992, data reflect adoption of SFAS 114.

Credit-Enhanced

Outstanding / Total MBS

Outstanding plus

Retained Portfolio6

(%)

6 Includes loans for which the lender or third-party has retained primary default risk by pledging collateral or agreeing to accept losses on loans that 

default. Also includes securities guaranteed by agencies or subject to subordination agreements. In some 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.

4Q02 0.41 0.13 0.00 0.04 23.7

3Q02 0.38 0.01 0.01 0.05 26.3

2Q02 0.36 0.02 0.01 0.04 27.8

1Q02 0.39 0.14 0.01 0.04 28.8

Annual Data

2002 0.41 0.13 0.00 0.04 23.7

2001 0.41 0.15 0.01 0.04 29.3

2000 0.37 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

Source: Freddie Mac
112 

Table 20. Freddie Mac Capital1

1 Freddie Mac has announced that it intends to restate certain financial results for 2002 and prior periods. Restatement of such financial results may 

affect some of the information presented in this table. 

Capital ($ in Millions)

End of 

Period

Core

Capital

($)

Regulatory

Minimum

Capital

Requirement2

($)

2 Minimum capital requirement in accordance with the Federal Housing Enterprises Financial Safety and Soundness Act of 1992. 

Regulatory

Capital

Surplus

(Deficit)3

($)

3 The difference between Core Capital and Minimum Regulatory Capital Requirement.

Market

Capitalization4

($)

4 Stock price multiplied by number of outstanding common shares. 

Core Capital /

Total Assets

(%)

Core Capital /

Total MBS

Outstanding

plus Total

Assets

(%)

Common

Share

Dividend

Payout

Rate5

(%)

5 Common dividends paid as a percentage of "operating net income available to common shareholders" for years 2002 and 2001, and as common 

dividends paid divided by "net income available to common stockholders" for years prior to 2001. Annual computations reflect the simple average of 

quarterly ratios. 

4Q02 23,792 21,620 2,172 40,569 3.30 1.62 31.1

3Q02 22,656 20,538 2,118 38,750 3.32 1.60 14.0

2Q02 21,446 19,520 1,926 42,557 3.33 1.57 16.7

1Q02 20,558 19,389 1,169 44,092 3.18 1.55 18.3

Annual Data

2002 23,792 21,620 2,172 40,569 3.30 1.62 20.1

2001 19,336 18,515 821 45,462 3.13 1.41 19.0

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

Applicable

Before

1993

Not

Applicable

Before

1993

23.1

1991 8,247 21.6

1990 2,925 23.2

1989 4,024 24.3

Not

Applicable

Before

1989

Not

Available

Before

1989

Source: Freddie Mac and OFHEO
113

Table 21. Combined Purchases

Business Activity ($ in Millions)

Purchases

Period

 Single-Family

($)

 Multifamily

($)

Total

($) Mortgage Securities1

($)

1 Not included in total mortgage purchases.

4Q02 486,044 12,656 498,700 208,881

3Q02 290,249 4,746 294,995 109,509

2Q02 245,973 4,461 250,434 71,140

1Q02 325,750 5,404 331,154 142,910

Annual Data

2002 1,348,016 27,267 1,375,283 532,440

2001 960,828 28,640 989,468 440,038

2000 395,082 16,407 411,489 221,612

1999 548,748 17,193 565,941 271,803

1998 618,410 15,338 633,748 275,706

1997 275,081 8,775 283,856 85,702

1996 287,306 8,680 295,986 83,567

1995 215,974 6,531 222,505 75,550

1994 280,792 4,686 285,478 45,722

1993 518,877 4,326 523,203 Not

Available

Before

1994

1992 439,702 2,983 442,685

1991 233,280 3,440 236,720

1990 185,187 4,518 189,705

1989 157,275 6,149 163,424

1988 107,497 5,361 112,858

1987 148,766 3,749 152,515

1986 177,159 5,415 182,574

1985 84,653 3,102 87,755

1984 Not

Available

Before

1985

Not

Available

Before

1985

50,704

1983 49,431

1982 49,610

1981 10,573

1980 11,791

1979 16,523

1978 18,829

1977 8,908

1976 4,761

1975 6,036

1974 9,204

1973 7,586

1972 5,129

1971 4,818

Sources: Fannie Mae and Freddie Mac
114

Table 21a. Combined Mortgage Purchases Detail, By Type of Loan - Part 1, Single-Family

Period

Purchases 

($ in Millions)

Single-Family Mortgages

Conventional FHA/VA

Fixed-Rate

($)

AdjustableRate

($)

Seconds

($)

Total

($)

Fixed-Rate

($)

AdjustableRate

($)

Total

($)

Total

SingleFamily

Mortgages

($)

4Q02 445,650 39,357 10 485,017 561 466 1,027 486,044

3Q02 260,934 28,367 10 289,311 559 379 938 290,249

2Q02 222,609 22,570 9 245,188 407 378 785 245,973

1Q02 303,404 21,395 12 324,811 614 325 939 325,750

Annual Data 

2002 1,232,597 111,689 41 1,344,327 2,141 1,548 3,689 1,348,016

2001 904,776 47,854 1,137 953,767 5,959 1,102 7,061 960,828

2000 332,980 55,010 726 388,716 5,446 920 6,366 395,082

1999 517,228 19,581 1,198 538,007 9,658 1,084 10,742 548,749

1998 590,375 21,657 1 612,033 5,866 511 6,377 618,410

1997 242,503 30,045 3 272,551 2,098 432 2,530 275,081

1996 242,470 22,025 3 284,498 2,474 334 2,808 287,306

1995 180,768 32,077 9 212,854 3,014 106 3,120 215,974

1994 245,717 32,986 8 278,711 1,968 113 2,081 280,792

1993 482,724 35,128 30 517,882 875 120 995 518,877

1992 401,847 36,513 143 438,503 1,120 79 1,199 439,702

1991 205,907 24,980 911 231,798 1,444 38 1,482 233,280

1990 151,817 30,814 1,340 183,971 1,201 15 1,216 185,187

1989 117,894 35,527 1,727 155,148 2,113 14 2,127 157,275

1988 70,504 34,745 492 105,741 1,658 98 1,756 107,497

1987 129,582 15,454 208 145,244 3,477 45 3,522 148,766

1986 154,356 9,567 588 164,511 12,634 14 12,648 177,159

1985 70,219 11,341 905 82,465 2,172 16 2,188 84,653

1984 Not

Available

Before

1985

Not

Available

Before

1985

Not

Available

Before

1985

Not

Available

Before

1985

Not

Available

Before

1985

Not

Available

Before

1985

Not

Available

Before

1985

Not

Available

Before

1985

Sources: Fannie Mae and Freddie Mac
115

Table 21a. Combined Mortgage Purchases Detail, By Type of Loan - Part 2, Multifamily 

Purchases 

($ in Millions)

Period

Multifamily Mortgages 

Conventional

($)

FHA/RHS

($)

Total Multifamily

Mortgages

($)

Total

Mortgage

Purchases

($)

4Q02 10,074 2,582 12,656 498,700

3Q02 4,736 10 4,746 294,995

2Q02 4,453 8 4,461 250,434

1Q02 5,343 61 5,404 331,154

Annual Data 

2002 24,606 2,661 27,267 1,375,283

2001 27,358 1,282 28,640 989,468

2000 15,157 1,250 16,407 411,489

1999 16,039 1,153 17,192 565,941

1998 14,754 584 15,338 633,748

1997 8,177 598 8,775 283,856

1996 8,428 252 8,680 295,986

1995 6,242 289 6,531 222,505

1994 4,467 219 4,686 285,478

1993 4,110 216 4,326 523,203

1992 2,872 111 2,983 442,685

1991 3,419 21 3,440 236,720

1990 4,503 15 4,518 189,705

1989 6,133 16 6,149 163,424

1988 5,340 21 5,361 112,858

1987 3,479 270 3,749 152,515

1986 5,415 Not

Available

Before

1987

5,415 182,574

1985 3,102

Not

Available

Before

1985

3,102

Not

Available

Before

1985

87,755

Not

Available

Before

1985

Sources: Fannie Mae and Freddie Mac
116

Table 21b. Combined Purchases of Mortgage-Related Securities

Period

Purchases 

($ in Millions)

Enterprise

Securities

($)

Others’ Securities

Mortgage

Revenue

Bonds

($)

Total

MortgageRelated

Securities

($)

Ginnie Mae

($)

Private - Label

Home

Equity

($)

Manufactured

Housing

($)

Other

($)

Total

Private

($)

4Q02 185,797 12 13,504 0 8,185 21,689 1,383 208,881

3Q02 96,100 575 5,103 0 6,744 11,847 987 109,509

2Q02 53,854 4,460 9,385 56 1,780 11,221 1,605 71,140

1Q02 132,556 952 7,470 0 748 8,218 1,184 142,910

Annual Data

2002 468,307 5,999 35,462 56 17,457 52,975 5,159 532,440

2001 416,692 2,528 7,509 0 7,977 15,486 5,332 440,038

2000 191,840 5,832 4,865 15 13,890 18,770 5,170 221,612

1999 213,970 20,983 7,931 3,293 20,550 31,774 5,076 271,803

1998 236,636 3,057 5,872 1,630 23,930 31,432 4,581 275,706

1997 73,345 3,834 374 36 5,272 5,682 2,841 85,702

1996 Not

Available

Before

1997

Not

Available

Before

1997

Not

Available

Before

1997

Not

Available

Before

1997

Not

Available

Before

1997

Not

Available

Before

1997

Not

Available

Before

1997

Not

Available

Before

1997

Sources: Fannie Mae and Freddie Mac
117

Table 22. Combined MBS Issuances

Business Activity ($ in Millions)

MBS Issuances

Period

Single-Family MBS

($)

Multifamily MBS

($)

Total MBS

($)

Multiclass MBS

($)

4Q02 455,318 8,725 464,043 154,189

3Q02 269,108 2,153 271,261 101,590

2Q02 234,087 2,221 263,308 111,751

1Q02 312,194 2,835 315,029 134,940

Annual Data

2002 1,270,707 15,934 1,286,641 502,470

2001 901,876 16,157 918,033 331,840

2000 369,181 9,382 378,563 87,746

1999 523,178 10,542 533,720 174,725

1998 564,747 11,965 576,712 219,309

1997 257,373 6,314 263,687 169,781

1996 263,133 6,438 269,571 64,925

1995 191,791 4,542 196,333 25,053

1994 245,286 2,446 247,732 146,496

1993 429,209 959 430,168 353,966

1992 372,389 855 373,244 301,489

1991 203,967 1,415 205,382 184,840

1990 168,004 2,506 170,510 108,770

1989 139,420 3,862 143,282 81,469

1988 90,610 4,045 94,655 29,990

1987 134,933 3,314 138,247 9,917

1986 156,815 3,949 160,764 4,633

1985 60,725 1,752 62,477 2,625

1984 Not

Issued

Before

1985

Not

Issued

Before

1985

32,230 1,805

1983 33,031 1,685

1982 38,139 Not

Issued

Before

1983

1981 4,243

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

Sources: Fannie Mae and Freddie Mac
118

Table 23. Combined Earnings1

1 See notes to Tables 3 and 13.

Earnings ($ in Millions)

Period

Core/Operating Net

Interest Income

($)

Guarantee Fee

Income

($)

Administrative

Expenses

($)

Credit-Related

Expenses

($)

Core/Operating Net

Income

($)

Net Income

($)

4Q02 3,590 858 593 25 2,518 2,655

3Q02 3,643 798 523 (280) 2,778 2,531

2Q02 3,647 748 505 20 2,541 2,574

1Q02 3,564 710 518 45 2,411 2,623

Annual Data

2002 14,444 3,114 2,139 (190) 10,248 10,383

2001 11,944 2,609 1,861 162 8,521 10,041

2000 8,944 2,408 1,618 200 6,995 6,995

1999 7,820 2,301 1,455 286 6,135 6,135

1998 6,325 2,248 1,286 603 5,118 5,118

1997 5,796 2,356 1,131 904 4,451 4,451

1996 5,297 2,282 1,000 1,017 3,968 3,968

1995 4,443 2,173 941 876 3,235 3,235

1994 3,935 2,191 904 803 3,115 3,115

1993 3,305 1,970 804 829 2,659 2,659

1992 2,753 1,770 710 777 2,245 2,245

1991 2,461 1,467 606 789 1,918 1,918

1990 2,212 1,190 529 784 1,587 1,587

1989 1,708 980 471 588 1,244 1,244

1988 1,329 793 412 584 888 888

1987 1,209 735 347 535 677 677

1986 683 476 285 426 352 352

1985 451 300 223 285 201 201

1984 123 236 183 140 73 73

1983 116 186 134 94 135 135

1982 (434) 93 97 62 (132) (132)

1981 (395) 36 79 (12) (175) (175)

1980 75 23 70 42 48 48

1979 377 18 65 55 198 198

1978 331 14 53 49 234 234

1977 282 9 44 36 186 186

1976 221 3 40 24 141 141

1975 205 3 37 27 131 131

1974 184 2 31 50 112 112

1973 211 2 25 27 138 138

1972 148 1 18 9 100 100

1971 59 1 Not

Available

Before

1972

Not

 Available

Before

 1972

67 67

Sources: Fannie Mae and Freddie Mac
119

Table 24. Combined Balance Sheet1

Balance Sheet ($ in Millions)

Mortgage-Backed

Securities Outstanding

($ in Millions)

End of 

Period

Total

Assets

($)

Total

Retained

Mortgage

Portfolio

($)

NonMortgage

Investments

($)

Debt

Outstanding

($)

Stockholders'

Equity

($)

Core

Capital

($)

Total MBS

Outstanding

($)

Multiclass

MBS

Outstanding

($)

4Q02 1,609,254 1,381,195 129,237 1,499,876 40,917 51,871 1,772,324 875,861

3Q02 1,519,860 1,300,719 131,281 1,423,522 37,530 49,140 1,720,734 873,947

2Q02 1,470,856 1,266,006 134,888 1,390,272 35,664 47,828 1,670,723 847,868

1Q02 1,454,519 1,259,888 135,003 1,373,221 36,618 46,058 1,573,374 816,246

Annual Data

2002 1,609,254 1,381,195 129,237 1,499,876 40,917 51,871 1,722,324 875,861

2001 1,417,288 1,199,957 151,998 1,328,538 33,491 44,518 1,505,315 766,009

2000 1,134,521 993,053 98,489 1,069,581 35,675 35,207 1,282,785 643,693

1999 961,992 845,891 73,903 908,330 29,154 30,568 1,217,052 651,682

1998 806,567 671,104 100,675 747,687 26,288 26,180 1,115,494 622,117

1997 586,270 481,135 81,026 542,616 21,314 21,169 1,055,123 622,189

1996 524,907 424,353 78,854 488,251 19,504 19,516 1,021,238 577,737

1995 453,731 360,574 69,984 419,135 16,822 16,788 972,275 599,894

1994 378,707 293,986 64,143 350,509 14,703 14,710 947,001 642,885

1993 300,859 246,107 39,621 251,105 12,489 12,489 910,335 647,043

1992 240,480 189,889 32,116 195,931 10,344 Not

Available

Before

1993

831,958 531,116

1991 193,932 153,346 19,792 164,199 8,113 714,447 371,784

1990 173,692 135,586 21,992 154,344 6,077 604,434 215,402

1989 159,777 129,429 19,388 142,211 4,907 489,382 117,691

1988 146,610 117,017 19,896 132,341 3,844 396,503 42,281

1987 129,133 106,019 13,935 116,604 2,993 348,369 15,011

1986 122,850 107,216 Not

Available

 Before

1987

108,938 2,135 264,754 5,333

1985 115,663 108,156 106,732 1,788 154,461 5,047

1984 101,576 94,153 94,718 1,524 105,764 3,214

1983 87,378 82,732 81,867 1,421 82,841 1,669

1982 78,980 74,035 74,605 1,249 57,402 Not

Issued

Before

1983

1981 67,904 64,807 64,231 1,330 20,614

1980 63,357 60,595 59,766 1,678 16,962

1979 55,948 53,780 52,555 1,739 15,316

1978 47,203 45,141 44,201 1,564 12,017

1977 37,481 36,456 35,000 1,350 6,765

1976 37,225 35,950 35,088 1,139 2,765

1975 37,495 35,698 35,572 1,003 1,643

1974 34,572 33,135 32,852 898 780

1973 27,191 26,110 25,699 801 791

1972 22,118 21,378 20,878 669 444

1971 19,629 18,821 18,587 567 64

Sources: Fannie Mae and Freddie Mac

1 See notes to Tables 4 and 14.
120

Table 24a. Combined Total MBS Outstanding Detail 

End of 

Period

MBS Outstanding ($ in Millions) 

Single-Family Mortgages

Conventional Total FHA/VA

($)

Multifamily

Mortgages

 ($)

Total MBS

Outstanding

($)

FixedRate

($)

AdjustableRate

 ($)

Seconds

($)

Total

($)

4Q02 1,588,122 116,469 343 1,704,934 7,499 59,891 1,772,324

3Q02 1,559,555 98,425 430 1,658,410 7,774 54,550 1,720,734

2Q02 1,521,129 87,360 511 1,609,000 7,834 53,889 1,670,723

1Q02 1,434,312 76,934 624 1,511,870 7,999 53,505 1,573,374

Annual Data

2002 1,588,122 116,469 343 1,704,934 7,499 59,891 1,772,324

2001 1,339,399 98,469 782 1,438,650 14,280 52,385 1,505,315

2000 1,133,292 97,761 1,183 1,232,236 8,854 41,695 1,282,785

1999 1,085,764 84,568 1,241 1,171,573 8,796 36,683 1,217,052

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

1,115,494

1997 1,055,123

1996 1,021,238

1995 972,275

1994 947,001

1993 910,335

1992 831,958

1991 714,447

1990 604,434

1989 489,382

1988 396,503

1987 348,369

1986 264,754

1985 154,461

1984 105,764

1983 82,841

1982 57,402

1981 20,614

1980 Not

Available

 Before

1981

Sources: Fannie Mae and Freddie Mac
121

Table 25. Combined Financial Derivatives1

1 See notes to Tables 6 and 16.

Financial Derivatives ($ in Millions)

End of 

Period

Interest

Rate

Swaps

($)

Interest

Rate Caps,

Floors, and

Corridors

($)

TreasuryBased

Contracts

($)

Foreign

Currency

Contracts

($)

OTC Futures,

Options, and

Forward Rate

Agreements

($)

Exchange-Traded

Futures, Options,

and Other

Derivatives

($)

Other

($)

Total

($)

4Q02 536,601 134,056 16,540 47,706 561,091 226,891 500 1,523,385

3Q02 597,996 116,266 19,477 43,364 436,244 92,129 0 1,305,476

2Q02 636,528 101,518 14,788 40,400 392,539 108,561 4,639 1,298,973

1Q02 670,081 96,534 17,229 36,770 362,736 333,766 4,976 1,522,092

Annual Data 

2002 536,601 134,056 16,540 47,706 561,091 226,891 500 1,523,385

2001 742,722 88,071 13,468 32,488 336,287 369,695 2,802 1,585,533

2000 505,539 46,482 2,200 19,719 166,979 22,517 35,839 799,275

1999 318,612 48,886 8,894 12,604 213,831 94,987 1,400 699,214

1998 200,401 36,345 11,542 14,459 76,481 157,832 3,735 500,795

1997 203,845 22,095 12,228 11,120 6,000 0 1,660 256,948

1996 204,786 14,395 651 2,973 0 0 350 223,155

1995 171,063 13,355 24 1,224 29 0 975 186,670

1994 109,304 9,363 0 1,023 0 0 1,465 121,154

1993 67,346 1,860 0 1,023 0 0 1,425 71,653

Sources: Fannie Mae and Freddie Mac
122

Table 26. Combined Non-Mortgage Investments

Non-Mortgage Investments ($ in Millions)

End of 

Period

Federal Funds

and Eurodollars

($)

Asset Backed

Securities

($)

Repurchase

Agreements

($)

 Commercial

Paper and

Corporate Debt

($)

Other

($)

Total

($)

4Q02 7,638 57,010 29,906 26,063 8,620 129,237

3Q02 21,117 53,411 16,492 28,771 11,490 131,281

2Q02 20,578 49,836 11,502 33,264 19,708 134,888

1Q02 15,631 48,063 22,141 32,375 16,793 135,003

Annual Data

2002 7,638 57,010 29,906 26,063 8,620 129,237

2001 31,935 47,190 14,911 45,229 12,733 151,998

2000 9,806 36,575 10,210 16,195 25,717 98,503

1999 15,382 29,512 7,535 5,639 15,835 73,903

1998 28,450 28,117 9,312 12,950 21,846 100,675

1997 21,962 18,839 13,697 14,948 11,580 81,026

1996 31,702 16,721 11,107 7,249 12,075 78,854

1995 19,885 10,404 19,392 9,830 10,473 69,984

1994 24,853 3,796 14,919 8,953 11,622 64,143

1993 13,763 3,557 8,882 1,438 11,981 39,621

1992 12,219 4,124 7,249 53 8,471 32,116

1991 5,903 2,416 6,632 0 4,841 19,792

1990 6,441 1,780 10,014 0 3,757 21,992

1989 8,685 1,107 5,765 0 3,831 19,388

1988 8,594 481 9,107 0 1,714 19,896

1987 5,736 25 5,859 0 2,315 13,935

Sources: Fannie Mae and Freddie Mac
123

Table 27. Combined Capital

Capital ($ in Millions)

End of 

Period

Core

Capital

($)

Regulatory

Minimum

Capital

Requirements

($)

Regulatory

Capital

Surplus

(Deficit)

($)

Market

Capitalization

($)

4Q02 51,871 48,823 3,048 104,181

3Q02 49,140 46,294 2,846 97,619

2Q02 47,828 44,747 3,081 115,774

1Q02 46,058 43,960 2,098 123,615

Annual Data

2002 51,871 48,823 3,048 104,181

2001 44,518 42,697 1,821 124,743

2000 35,207 34,472 735 134,345

1999 30,568 30,057 511 96,364

1998 26,180 25,667 513 120,678

1997 21,169 19,785 1,384 87,628

1996 19,516 17,983 1,533 59,093

1995 16,788 16,035 753 48,744

1994 14,710 14,300 410 29,014

1993 12,489 11,658 831 30,392

1992 Not

Applicable

Before

1993

Not

Applicable

Before

1993

Not

Applicable

 Before

1993

29,595

1991 27,083

1990 11,415

1989 12,116

1988 3,992

1987 2,401

1986 3,006

1985 1,904

1984 1,012

1983 1,514

1982 1,603

1981 502

1980 702

Sources: Fannie Mae, Freddie Mac, and OFHEO
124

Table 28. Loan Limits

Single-Family Conforming Loan Limits1 ($)

1 Conforming Loan Limits are 50% higher in Alaska, Hawaii, Guam, and the U.S. Virgin Islands.

Year 1-unit 2-units 3-units 4-units

1970 - 1976 33,000 Not Applicable Not Applicable Not Applicable

1977 - 1978 60,000 Not Applicable Not Applicable Not Applicable

1979 67,500 Not Applicable Not Applicable Not Applicable

1980 93,750 120,000 145,000 180,000

1981 98,500 126,000 152,000 189,000

1982 107,000 136,800 165,100 205,300

1983 108,300 138,500 167,200 207,900

1984 114,000 145,800 176,100 218,900

1985 115,300 147,500 178,200 221,500

1986 133,250 170,450 205,950 256,000

1987 153,100 195,850 236,650 294,150

1988 168,700 215,800 260,800 324,150

1989 187,600 239,950 290,000 360,450

1990 187,450 239,750 289,750 360,150

1991 191,250 244,650 295,650 367,500

1992 202,300 258,800 312,800 388,800

1993 203,150 259,850 314,100 390,400

1994 203,150 259,850 314,100 390,400

1995 203,150 259,850 314,100 390,400

1996 207,000 264,750 320,050 397,800

1997 214,600 274,550 331,850 412,450

1998 227,150 290,650 351,300 436,000

1999 240,000 307,100 371,200 461,350

2000 252,700 323,400 390,900 485,800

2001 275,000 351,950 425,400 528,700

2002 300,700 384,900 465,200 578,150

2003 322,700 413,100 499,300 620,500

Sources: Department of Housing and Urban Development (HUD), Federal Housing Finance Board, Freddie Mac

FHA Single-Family Insurable Limits ($)

1-unit 2-units 3-units 4-units

Low Cost High Cost Low Cost High Cost Low Cost High Cost Low Cost High Cost

Year Area Max Area Max Area Max Area Max Area Max Area Max Area Max Area Max

1997 81,546 170,362 104,310 205,875 126,103 248,888 156,731 309,338

1998 109,032 197,621 139,512 252,866 168,624 305,631 209,568 379,842

1999 115,200 208,800 147,408 267,177 178,176 322,944 221,448 401,375

2000 121,296 219,849 155,232 281,358 187,632 340,083 233,184 422,646

2001 132,000 239,250 168,936 306,196 204,192 370,098 253,766 459,969

2002 144,336 261,609 184,752 334,863 223,296 404,724 277,512 502,990

2003 154,896 280,749 198,288 359,397 239,664 434,391 297,840 539,835
125

Table 29. Mortgage Interest Rates

Period

Average Commitment Rates on Loans1

1 Commitment rates do not reflect points.

Effective Rates on Closed Loans2

2 Effective rates reflect points.

Conventional Conventional

30-Year Fixed Rate

(%)

One-Year ARMs

(%)

Fixed Rate

(%)

Adjustable Rate

(%)

4Q02 6.1 4.2 6.2 6.0

3Q02 6.3 4.4 6.6 5.8

2Q02 6.8 4.8 7.1 5.5

1Q02 7.0 5.1 7.3 5.4

Annual Data

2002 6.5 4.6 6.7 5.6

2001 7.0 5.8 7.1 6.4

2000 8.1 7.0 8.3 7.0

1999 7.4 6.0 7.5 6.5

1998 6.9 5.6 7.2 6.5

1997 7.6 5.6 7.9 7.0

1996 7.8 5.7 8.0 7.2

1995 7.9 6.1 8.2 7.4

1994 8.4 5.3 8.1 6.6

1993 7.3 4.6 7.5 5.9

1992 8.4 5.6 8.5 6.9

1991 9.2 7.1 9.7 8.4

1990 10.1 8.4 10.4 9.2

1989 10.3 8.8 10.5 9.3

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 10.0 12.4 10.8

1984 13.9 11.5 13.2 12.1

1983 13.2 Not

Available

Before

1984

13.0 12.3

1982 16.1 15.2 15.4

1981 16.6 Not

Available

Before

 1982

Not

Available

Before

1982

1980 13.8

1979 11.2

1978 9.6

1977 8.8

1976 8.9

1975 9.0

1974 9.2

1973 8.0

1972 7.4

Average Commitment Rates Source: Freddie Mac

Effective Rates Source: Federal Housing Finance Board
126

Table 30. Housing Market Activity

Period

Housing Starts

units in thousands

Home Sales

units in thousands

Single-Family

Housing

Starts

Multifamily

Housing

Starts

Total

Housing

Starts

New

Single-Family

Home Sales

Existing

Single-Family

Home Sales

4Q02* 1,414 334 1,748 1,033 5,773

3Q02* 1,340 357 1,697 1,020 5,400

2Q02* 1,328 338 1,667 951 5,500

1Q02* 1,371 354 1,725 907 5,717

Annual Data

2002 1,359 347 1,705 973 5,567

2001 1,273 330 1,603 909 5,296

2000 1,231 338 1,569 877 5,031

1999 1,303 339 1,641 881 5,197

1998 1,271 346 1,617 885 4,970

1997 1,134 340 1,474 805 4,382

1996 1,161 316 1,477 758 4,196

1995 1,076 278 1,354 665 3,888

1994 1,198 259 1,457 670 3,916

1993 1,126 162 1,288 666 3,786

1992 1,030 170 1,200 610 3,479

1991 840 174 1,014 507 3,186

1990 895 298 1,193 535 3,219

1989 1,003 373 1,376 650 3,325

1988 1,081 407 1,488 675 3,513

1987 1,146 474 1,621 672 3,436

1986 1,180 626 1,805 752 3,474

1985 1,072 669 1,742 688 3,134

1984 1,084 665 1,749 639 2,829

1983 1,068 636 1,703 622 2,697

1982 663 400 1,062 413 1,991

1981 705 379 1,084 436 2,419

1980 852 440 1,292 545 2,973

1979 1,194 551 1,745 709 3,827

1978 1,433 587 2,020 818 3,986

1977 1,451 536 1,987 820 3,650

1976 1,162 375 1,537 647 3,064

1975 892 268 1,160 550 2,476

1974 888 450 1,338 519 2,272

1973 1,132 913 2,045 633 2,334

1972 1,309 1,047 2,357 718 2,252

1971 1,151 901 2,052 657 2,019

Components may not add to totals due to rounding

*Seasonally Adjusted Annual Rates

Housing Starts Source and New Single-Family Home Sales Source: Bureau of the Census 

Existing Single-Family Home Sales Source: National Association of Realtors
127

Table 31. Weighted Repeat Sales House Price Index 

Weighted Repeat Sales House Price Index (Annual Data)1 

USA

New

England

MidAtlanticSouth

Atlantic

East

North

Central

West

North

Central

East

South

Central

West

South

Central Mountain Pacific

1Q03 6.48 9.58 8.98 6.86 3.40 4.80 3.52 3.91 3.83 9.47

4Q02 7.60 11.33 10.87 7.71 4.45 6.27 3.57 4.18 4.53 10.84

3Q02 7.43 11.30 10.49 7.93 4.49 6.26 3.76 4.33 4.82 9.70

2Q02 7.50 12.23 10.76 7.87 5.08 7.19 3.33 4.04 4.63 8.90

1Q02 7.08 11.43 9.49 7.25 5.21 7.26 3.48 3.90 4.89 8.31

Annual Data

2002 7.60 11.33 10.87 7.71 4.45 6.27 3.57 4.18 4.53 10.84

2001 7.66 10.94 8.89 8.24 5.25 7.45 5.37 6.16 6.56 9.15

2000 7.88 12.66 8.24 6.76 6.28 7.54 4.17 5.28 7.22 11.61

1999 5.76 10.36 5.87 4.83 5.26 7.07 2.84 4.84 4.89 6.60

1998 4.96 6.49 4.07 4.51 4.11 4.61 4.86 5.00 3.99 7.17

1997 4.58 4.61 3.24 4.50 5.22 4.96 4.74 3.85 4.90 5.20

1996 2.58 1.75 0.29 2.20 5.01 4.10 4.07 2.35 4.26 0.96

1995 4.48 4.05 3.18 4.32 6.02 5.25 5.53 4.13 7.47 2.78

1994 0.84 -2.95 -3.21 0.08 5.06 5.38 4.84 1.65 9.16 -3.41

1993 2.00 0.29 1.31 1.87 3.61 3.83 4.02 3.95 7.83 -1.98

1992 1.85 -1.10 1.70 2.12 3.88 3.01 3.25 3.43 5.34 -1.39

1991 2.55 -2.26 1.49 3.03 4.57 3.80 4.16 3.70 4.71 1.32

1990 0.16 -7.65 -2.87 0.12 3.74 0.51 0.70 0.44 1.88 2.89

1989 6.04 0.80 2.29 5.04 6.08 3.24 3.01 2.74 2.67 19.49

1988 6.25 3.65 6.13 6.95 6.71 2.45 2.57 -2.13 0.36 17.51

1987 6.87 13.28 16.11 6.94 8.07 2.47 4.19 -8.63 -2.79 9.60

1986 8.23 21.00 17.87 5.99 7.27 4.13 5.68 -0.49 3.27 7.23

1985 6.74 24.97 14.39 5.67 4.87 4.39 4.56 -1.11 2.35 4.97

1984 5.48 17.88 13.42 4.33 2.88 4.64 3.98 -0.13 2.06 5.20

1983 4.20 16.13 10.16 3.48 4.22 4.67 5.07 0.85 -2.76 1.05

1982 2.22 4.28 4.32 4.44 -4.81 -0.16 3.43 6.04 7.30 0.85

1981 4.47 5.01 0.48 6.23 2.34 -0.20 0.61 11.52 6.58 5.98

1980 6.79 6.01 9.09 7.80 1.56 4.33 7.43 7.80 6.67 11.29

1979 11.86 10.46 15.78 11.22 9.35 9.25 4.63 13.37 15.71 16.22

1978 13.21 17.94 6.76 11.08 13.65 12.85 12.03 16.78 17.31 15.73

1977 13.21 8.43 11.43 7.85 13.44 15.10 10.13 11.46 18.06 25.60

1976 7.60 3.33 2.30 5.03 8.08 5.98 5.47 9.26 9.84 20.25

Regional Divisions: 

New England: CT, MA, ME, NH, RI, VT

Mid-Atlantic: NJ, NY, PA

South Atlantic: DC, DE, FL, GA, MD, NC, SC, VA, WV

East North Central: IL, IN, MI, OH, WI, ND, SD, NE

East South Central: AL, KY, MS, TN

West South Central: AR, LA, OK, TX

Mountain: AZ, CO, ID, MT, NM, NV, UT, WY

Pacific: AK, CA, HI, OR, WA

1 All data are measured based on percentage change over the previous four quarters. Data from 1976 - 2002 are measured based on fourth quarter 

to fourth quarter percentage change.