U.S. Territory of Guam

Homeowner Assistance 

Fund Plan

August 2021

November 2021 (updated)

 
Guam Homeowner Assistance Fund Program 2

Table of Contents

Program Overview 3

Homeowner Needs and Community Engagement 3

Homeownership on Guam 4

Monthly Housing Cost 5

Income and Social Disadvantaged Households 5

Mortgage Delinquency 6

Utility and Tax Delinquency 6

Homeowner Needs Conclusion 7

Community Engagement 7

Program Design 9

Mortgage Assistance Program 10

Utility Assistance Program 12

Property Tax Assistance Program 14

Application Process 16

Other Available Assistance 16

Targeting Efforts, Public Communication, and Outreach Activities 16

Defining Socially Disadvantaged Individuals 17

Collaboration with other HAF Participants 17

Housing Counseling and Legal Services 17

Prioritization of Assistance 17

Financial Assistance 18

Performance Goals 18

Readiness 19

Staffing, Systems and Contractors 19

Use of Initial Payment 20

Budget 21

Point of Contacts 22

Exhibit A - Fiscal Year 2021 HAF Income Limits Summary for Guam 23
Guam Homeowner Assistance Fund Program 3

Program Overview

The Homeowner Assistance Fund (HAF) was established under Section 3206 of the American Rescue Plan 

Act of 2021 to mitigate financial hardships associated with the COVID-19 pandemic. The HAF will help

eligible entities for the purpose of preventing homeowner mortgage and utility delinquencies, defaults, 

foreclosures, loss of utilities, home energy services, and displacement of homeowner experiencing financial 

hardship after January 21, 2020, through qualified expenses related to homeownership.

The Territory of Guam is estimated to receive an allocation of $13,587,562 in Homeowner Assistance Funds 

to distribute to homeowners in need. The Guam Department of Administration (DOA) has been designated 

to administer and implement the HAF on behalf of the U.S. Territory of Guam.

Guam’s HAF Plan proposes relief assistance programs aimed at preventing homeowner’s mortgage 

delinquencies, foreclosures, loss of utilities and displacement of low- and moderate-income and Socially 

Disadvantaged Individuals. Proposed relief includes three programs: 1) Mortgage Assistance Program, 2) 

Utility Assistance Program and 3) Property Tax Assistance Program.

Homeowner Needs and Community Engagement

Such as the entire nation, Guamanians experienced severe hardship since the coronavirus pandemic. Today 

Guam’s unemployment rate is at 16.5%, an increase of 10.4% from the December 2019 figure prepandemic (Source: Guam Department of Labor - Bureau of Labor Statistics). The financial challenges facing 

Guamanians have worsened as foreclosure and eviction moratoriums ended on June 30, 2021 and federal 

unemployment benefits expiring on September 4, 2021.

To effectively target eligible homeowners and maximize the use of the Homeowner Assistance Fund, DOA 

gathered data to provide an overview of homeowners in need of HAF programs in Guam. Data was 

collected from the 2020 Guam Housing Study and Needs Assessment funded by Guam Housing and Urban 

Renewal Authority (“GHURA”), Guam Department of Labor - Bureau of Labor Statistics, 2019 Guam 

Statistical Yearbook, Guam Housing Corporation, Guam Power Authority, Guam Waterworks Authority and 

Guam Department of Revenue and Taxation, Bank of Guam, Marianas Finance Corporation and Personal 

Finance Center. A brief description of these data sources is provided in Table 1.

Table 1. Data Collection Resources

Factor Source Description

Target and 

Eligible 

Homeowners

(Homeowners 

impacted, 

Income 

Eligibility, Social

Disadvantaged

Individuals)

2020 Guam 

Housing Study and 

Needs Assessment 

The study documents quantitative data on present and future 

housing stock, existing housing conditions, future housing 

conditions, demographic, market trends, housing policies, 

housing gaps and issues.

The study also captures quantitative data on economic 

conditions, social-demographic population, and current 

housing demand for ownership and rental housing units.

Economic 

Impact (COVID19 impact)

Guam Department 

of Labor - Bureau of 

GDOL-BLS conducts independent surveys to study, investigate, 

collect, and compile statistical information and issue reports of 

Guam’s labor market conditions, such as: employment, 
Guam Homeowner Assistance Fund Program 4

Labor Statistics 

(GDOL-BLS)

unemployment, and other characteristics of the specified 

civilian non-institutional population of Guam. The statistical 

information provides quantitative data on Guam’s 

unemployment rates pre- and post-pandemic.

Target and 

Eligible 

Population

(Social

Disadvantaged)

2019 Guam 

Statistical Yearbook

The yearbook captures quantitative date about the economy, 

the environment, housing, and population. 

Mortgage 

Servicer

Guam Housing 

Corporation (GHC)

GHC is a local government entity that provides mortgage 

financing for first time homeowners and rental opportunities 

to individuals and families in the low income to moderate 

range.

DOA continues to partner with the GHC to obtain regularly 

updated data on their mortgage delinquency.

Mortgage 

Servicer

Marianas Finance 

Corporation (MFC), 

Personal Finance 

Center (PFC), Bank 

of Guam (BOG)

MFC, PFC and BOG are private mortgage financial institutions.

Utility Providers

(power and 

water)

Guam Power 

Authority (GPA); 

Guam Waterworks 

Authority (GWA)

GPA and GWA are local government entities that provide the 

island community with power and water services. The 

information provides quantitative data on delinquent utility 

account holders.

Government Tax 

Assessor

Guam Department 

of Revenue and 

Taxation (DRT)

DRT is the tax collection office for Guam. The information 

collected provides quantitative data on delinquent property tax.

Homeownership on Guam

According to the 2020 Guam Housing Study and Needs Assessment, there are 55,562 housing units in

Guam. By the U.S. Census definition, total housing units include all units that are either available for 

occupancy as owned units or long-term rental accommodations. The total housing units includes occupied 

and vacant housing units. Occupied housing units are units that are either owner- or renter-occupied by a 

single individual, or group of related or unrelated people. By U.S. Census convention, the number of 

occupied housing units is always equivalent to the number of households. 

Furthermore, the Guam Housing Study revealed Guam’s population is estimated at 166,661 people, living in 

approximately 45,645 occupied housing units, which is 82.2% of the total housing units on Guam. The 

remaining 17.8% are vacant housing units. Of the occupied housing units, 41.1% are owner-occupied and 

41.1% are rental-occupied. See Table 2.

Table 2: Housing Unit Types and Housing Stock, Guam 2019

Housing Unit Types Total Units Percent

Total Housing Units 55,562 100%

 Occupied Housing Units 45,645 82.2%

 Owner-occupied 22,823 41.1%
Guam Homeowner Assistance Fund Program 5

 Renter-occupied 22,822 41.1%

 Vacant Housing Units 9,918 17.8%

Source: 2020 Guam Housing Study and Needs Assessment

Monthly Housing Cost

Guam homeowners have a median mortgage payment of $1,294 per month (Table 3). Mortgage payments 

amounts vary slightly throughout the island, with the South showing the highest rate at $1,389 per month.

Table 3: Monthly Housing Costs, Guam 2019

North Central South Guam Total

Count Monthly 

Housing 

Cost

Count Monthly 

Housing 

Cost

Count Monthly 

Housing 

Cost

Count Monthly 

Housing 

Cost

All owned 

units

8,913 $1,230 7,567 $1,304 6,342 $1,389 22,823 $1,294

Source: 2020 Guam Housing Study and Needs Assessment

Income and Social Disadvantaged Households

More than half of Guam’s homeowner population is estimated to meet the HAF income eligibility 

requirements. There are an estimated 7,303 (32%) homeowner households that are at or below 150% area 

median income and 6,162 (27%) homeowner households that are at or below 100% area median income. 

(Source: 2020 Guam Housing Study and Needs Assessment) 

Treasury defines socially disadvantaged individuals as those whose ability to purchase or own a home has 

been impaired due to diminished access to credit on reasonable terms as compared to others in 

comparable economic circumstances, based on disparities in homeownership rates in the HAF participant’s 

jurisdiction as documented by the U.S. Census. The impairment must stem from circumstances beyond 

their control. Indicators of impairment under this definition may include being a (1) member of a group 

that has been subjected to racial or ethnic prejudice or cultural bias within American society, (2) resident of 

a majority-minority Census tract; (3) individual with limited English proficiency; (4) resident of a U.S. 

territory, Indian reservation, or Hawaiian Home Land, or (5) individual who lives in a persistent-poverty 

county, meaning any county that has had 20% or more of its population living in poverty over the past 30 

days as measured by the three most recent decennial censuses. In addition, an individual may be 

determined to be a socially disadvantaged individual in accordance with a process developed by a HAF 

participant for determining whether a homeowner is a socially disadvantaged individual in accordance with 

applicable law, which may reasonably rely on self-attestations.

With Guam identified as a U.S. Territory, individuals who reside in Guam meets the Treasury’s definition of 

socially disadvantaged. For purpose of this analysis, eligible homeowners for Guam’s HAF program will also 

meet the definition of being socially disadvantaged. A breakdown of Guam’s population is described on 

Table 4.

Table 4: Ethnic Origin or Race, Guam 

Total Population 159,358

Native Hawaiian and Other Pacific 

Island

Carolinian – 242

Chamorro – 59,381

Chuukese – 11,230

Kosraean – 425

Marshallese – 315

Palauan – 2,563

78,582 49%
Guam Homeowner Assistance Fund Program 6

Pohnpeian – 2,248

Yapese – 1,263

Other – 915

Asian Chinese (except Taiwanese) – 2,368

Filipino – 41,944

Japanese – 2,368

Korean – 3,437

Taiwanese - 249

Vietnamese - 337

Other – 678

51,381 32%

Black or African American 1,540 1%

Hispanic or Latino 1,201 0.50%

White 11,321 7%

Other Ethnic Origin or Race 404 0.10%

Two or More Ethnic Origins or Races Native Hawaiian and Other Pacific Islander and other 

groups – 11,656

Chamorro and other groups – 9,717

Asian and other groups – 8,574

14,929 9.4%

Source: 2019 Guam Statistical Yearbook

Mortgage Delinquency

Access to Guam’s mortgage delinquency data was limited at the time the plan was written. DOA received

information from four financial institutions. The data submitted indicates 2,376 homeowners mortgage 

loans are 30+ days past due and/or outstanding accounts. See Table 5 on details of the information.

Table 5: Mortgage Loan Delinquent and Outstanding Status

Mortgage Servicer Number of Total Mortgage Loans Mortgage Loans with 

Delinquent/Outstanding Status

Guam Housing Corporation 321 35

Marianas Finance Corporation* 61 5

Personal Finance Center* 184 167

Bank of Guam* (unavailable) 2,169

Total 2,376

*Delinquency Ratio

There are about 10 other financial institutions in Guam that offer mortgage loans. DOA will continue to 

collect data on mortgage delinquency from the other institutions. 

Utility and Tax Delinquency

For the past year, GPA and GWA suspended disconnecting services to homes and businesses with unpaid 

monthly utility bills to help Guamanians who lost their jobs or lost working hours due to the COVID-19 

pandemic. Earlier this year, after the Governor of Guam lifted several restrictions allowing more businesses 

to open and people to return to work or find new jobs, the two agencies started to focus on bringing 

accounts up to date. 

In March 2021, during a meeting with the Consolidated Commission on Utilities, the commission agreed to 

resume disconnections of delinquent utility accounts effective June 1, 2021. As of July 31, 2021, an 

estimated residents who are 60 days overdue with power and water accounts are listed on Table 6.
Guam Homeowner Assistance Fund Program 7

Table 6: Utility Delinquent Data

Utility Provider Number of Delinquent 

Account Holders

Total Delinquent Amount 

Guam Waterworks Authority 2,359 $2.6 million

Guam Power Authority 6,146 $3.9 million

With the federal unemployment assistance ending on September 4, 2021, it is estimated the number of 

delinquent utility accounts will increase. DOA will continue to collaborate with utility providers to ensure 

these customers behind with their utility payments are aware of HAF Utility Assistance Program.

The Guam Department of Revenue and Taxation Real Property Tax Division reported a $4.28 million in 

unpaid property tax for 2020. These unpaid taxes are for 10,940 parcels, which is a combination of 

homeowners and business establishments. The past due amount only covers tax amount owed and does 

not include penalties, fees, and interest. 

Homeowner Needs Conclusion

Considering the data factors gathered, the proposed programs in the next section are designed to provide 

Guamanian homeowners with critically needed assistance. The COVID-19 pandemic has caused widespread economic disruption on Guam, including loss of income, closure of businesses, and job loss. Using 

HAF funds to reduce or eliminate homeowner delinquencies, defaults, foreclosures and displacement, past 

due utilities and delinquent property taxes will assist homeowners across the island with financial recovery 

to achieve housing stability.

As economic conditions change over time, DOA plans to continue assessing data on mortgage delinquency, 

utility arrears and property tax past due accounts. Updated data assessments will be conducted every six 

months beginning from the date of implementation. DOA also plans to continue to update Guam’s HAF 

plan to ensure the needs of potential eligible homeowners impacted by COVID-19 are being addressed and 

serviced.

Community Engagement (Updated)

Guam’s HAF draft framework was posted on the Department of Administration’s website for public review

beginning on July 19, 2021. Public comments are submitted via email to haf@doa.guam.gov .

In addition, DOA connected directly with private financial institutions, a non-profit organization, and local 

government entities that service low to moderate income level households. These service providers were 

given Guam’s HAF draft framework and asked to provide comments to the proposed use of funds. A brief 

description of these organizations is provided on Table 7.

Table 7. Service Providers

Provider Name Provider 

Address

Provider Website Provider 

Primarily 

Serves LMI 

Households

Provider 

Addresses 

Impacts of 

Housing 

Discrimination

Guam Housing 

Corporation

590 S. Marine 

Corps Drive, 

Ste. 535 ITC Bldg 

www.guamhousing.org Yes Yes
Guam Homeowner Assistance Fund Program 8

5th Floor, 

Tamuning, 

Guam 96931

Guam Housing Urban 

and Renewal Authority

Administers HUD funded 

programs, such as: 

Housing Counseling, 

Housing Choice Voucher 

Program, Public Housing 

Program, HOME, Family 

Self Sufficiency, ROSS, 

and Emergency Solutions 

Grant)

117 Bienvenida 

Ave, Sinajana, 

Guam 96910

www.ghura.org Yes Yes

Guam Bankers 

Association (GBA)

Trade organization made 

up of local privately 

owned banks.

Members include: ANZ, 

Bank of Guam, Bank 

Pacific, First Commercial 

Bank, Bank of Hawaii and 

First Hawaiian Bank

Ed Untalan, GBA 

President

euntalan@fhb.com Yes Yes

Guam Habitat of 

Humanity

A nonprofit housing 

organization provides 

social service and 

financial service.

542-1

Gumataotao

Building,

West O'Brien Dr.

Hagatna, Guam

www.habitatguam.org Yes Yes

DOA will continue to accept comments from the public and service providers throughout the planning and 

implementation process of the program. Feedback will be incorporated into the updated assessment on 

eligible homeowners which is scheduled six months from the date of implementation.

DOA continued to receive feedback from the public on Guam’s HAF plan. Several opportunities 

were made available for the public, private, nonprofit sectors, and key stakeholders to provide 

feedback on the plan.

During the months of September, October, and November 2021, 10 virtual sessions were held to 

get feedback on Guam’s HAF plan. Invitees of these meetings included representatives from 

mortgage lenders, utility providers, cultural groups, non-profit organizations, mayor’s council, 

homeowner associations, housing counseling agency, homelessness council and homeowners. 
Guam Homeowner Assistance Fund Program 9

Over the course of these meetings, 448 individuals participated in these meetings and DOA fielded over 50+

comments and questions. 

Virtual Sessions

Date Organization #Participants

9/2/2021 Interagency Council for Coordinating Homelessness Programs 19

9/22/2021 Mortgage Lenders 13

9/28/2021 Utility Service Providers 6

10/7/2021 Interagency Council for Coordinating Homelessness Programs 23

10/8/2021 Guam Association of Realtors Board 5

10/12/2021 Federal States of Micronesian Consulate 7

10/13/2021 Guam Mayors Council 14

10/20/2021 Catholic Social Services 20

10/21/2021 Guam Association of Realtors 300

10/26/2021 Micronesian Resource Services (Mane’lu) 20

11/5/2021 WestCare Pacific Islands 21

Total 448

Summary feedback/discussion from virtual presentations:

- Frequently discussed topics primarily pertained to eligibility, qualified financial hardship associated 

with COVID-19, application submission, and program launch.

- Comments from mortgage lenders and utility providers were focused on payment prioritization 

process, to include loans - daily late fees, charges, forbearance, insurance and suspension of 

accrued fees. The HAF program developed verification forms for lenders and providers that 

addressed the concerns. Point of contacts for lenders and utility providers are being established to 

streamline communication.

- Discussions with the Mayors Council of Guam and non-profit organizations were about application 

distribution, outreach activities and availing program information in various languages. A concern 

representatives shared was the availability of a second round of relief funds should HAF funds run 

out and homeowners are still in need of assistance. The program responded at this time there is no 

discussion for a second round of HAF funding and will update the community as information 

becomes available.

The public was also given the opportunity to provide comments through email submission. DOA received 50 

inquiries through this process. These inquiries received are from struggling homeowners describing their 

challenges with making mortgage and utility payments due to financial hardships because of the 

coronavirus pandemic. In addition, daily telephone calls are received inquiring when the program will 

launch. 

Key elements of the HAF plan were based on the feedback received from homeowners and stakeholders.

Program Design (updated)

The following relief assistance programs are designed with the intent to prevent foreclosure and 

displacement of the maximum number of homeowners who are at the greatest risk of housing instability
Guam Homeowner Assistance Fund Program 10

due to COVID-19. Over time, programs may be adjusted to best meet homeowner needs and maximize the 

number of home retentions. 

Mortgage Assistance Program

Criteria Terms

Brief description Provide funds to prevent foreclosure and displacement of homeowners 

experiencing financial hardship due to the coronavirus pandemic. 

Eligible mortgage type for payment relief assistance for this program will 

include:

o Past due mortgage payments and other delinquent amounts

(including principal, interest, and escrow), including payments under 

a forbearance and deferment plan.

o Prospective mortgage payments.

o Reduce monthly mortgage/loan.

o 1st and 2nd mortgage loans, reverse mortgages, and loans secured by 

a manufactured home.

o Contract for deed or land contract.

o Repay amounts advanced by the mortgage lender or servicer on the 

borrower’s behalf for property charges, including property taxes and 

mortgage insurance.

o Fees, penalties and/or interest incurred on the above.

HAF funds may be used to bring mortgage account fully current, with no 

remaining delinquent amounts. Payment may also include any reasonably 

required legal fees. Payment assistance may apply until the maximum 

amount of assistance is reached.

Maximum Per Household 

HAF Assistance

Each homeowner will be eligible for up to $15,000 through this program to 

be used only for the homeowner’s primary resident.

The maximum financial assistance per homeowner to include one or any 

combination of the eligible programs. 

Homeowner eligibility 

criteria and 

documentation 

requirements

Eligible homeowners must meet the following criteria:

o Must be a homeowner.

o Homeowner must currently own and occupy the property as their 

primary residence.

o Homeowner must describe and attest to financial hardship after 

January 21, 2020, such as job loss, a reduction in household income, 

incurred significant costs for health care or experienced other 

financial hardship due, directly, or indirectly, to the COVID-19 

pandemic.

o Household income equal to or less than 150% of the area median 

income for Guam and meets the definition of social disadvantaged as 

defined by the U.S. Department of Treasury; or equal to or less than

either the 100% of the median income for Guam or 100% median 

income for the United States, whichever is greater. See Exhibit A –

HAF Income Limits.
Guam Homeowner Assistance Fund Program 11

Documentation requirements:

o Verification of Mortgage (loan must be delinquent at least one 

month, includes loan under forbearance plan)

o Current utility bill indicating name and address of property 

o Documentation verifying financial hardship due to COVID-19

o Tax year 2020 filed documents

o Form 1040, 1040-SR, 1040-SS, etc. and all attachments

o Applies to all adult household members

o For non-taxable income, supporting documents must be 

provided

o Self-Employed, last 12-month tax filed GRTs (if applicable)

o Valid Photo Identification (Guam ID or driver’s license, passport or 

any state issue)

o Household Member Form (all other adult household members)

o Verification of Income/Employment 

o Latest 2 Check Stubs 

o Verification of Unemployment Benefits (if applicable)

o Self-attestation on household eligibility status 

Homeowners challenged obtaining above documentations may submit a 

written self-attestation describing their household status. With regards to 

income, other acceptable documentation are paystubs, W-2s or other wage 

statements, IRS Form 1099s, tax filings, bank statements demonstrating 

regular income, or a written attestation from an employer.

Loan eligibility criteria 

specific to the program

Delinquent by at least one payment, including any payments during a 

forbearance or deferment period.

Qualified Financial 

Hardship definition and 

acceptable 

documentation

A COVID-19 qualified financial hardship is:

A material reduction in income or material increase in living expenses that 

created or increased a risk of mortgage delinquency, mortgage default, 

foreclosure, deferment, loss of utilities or home energy services that is 

associated with the coronavirus pandemic. This includes as follows:

o Reduction of income: Temporary or permanent loss of earned income 

documented after January 21, 2020.

o Increase in living expenses: Increase in out-of-pocket household expenses 

such as, medical expenses, inadequate medical insurance, increase in 

household size, costs to reconnect utility services directly related to the 

coronavirus pandemic after January 21, 2020.

Acceptable documentation:

o Employer furlough letter due to COVID-19

o Written self-attestation - applicant must explain the financial 

hardship due to COVID-19

o Mortgage verification of foreclosure or deferment*

o Utility (power, water, or trash) disconnection/reconnection receipt*

o Receipts on out-of-pocket expenses*
Guam Homeowner Assistance Fund Program 12

*Written self-attestation further explaining financial hardship must be 

submitted.

Eligible Properties Eligible properties are primary residences in Guam that is one of the 

following:

o Single-family home

o Condominium unit

o Duplex

o One-to-four-unit dwelling

o Manufactured home permanently affixed

Ineligible properties are non-primary residences in Guam includes:

o Vacant or abandoned home

o Second home

o Investment property

o Manufactured homes not permanently affixed

Form of assistance Assistance will be structured as a non-recourse grant.

Payment requirements Disbursements will be made directly to the mortgage lender/servicer.

Utility Assistance Program

Criteria Terms

Brief description Provide funds to resolve delinquent payments for utility services.

HAF funds may be used to pay delinquent amounts in full, including interest 

or reasonably required legal fees, in which the delinquency threatens access 

to utility services. The assistance provided must bring the homeowner’s 

account current.

HAF funds may be used to pay prospective charges for up until the maximum 

amount of assistance is reached, following approval if the homeowner is 

unable to make such payments.

Eligible utility service is defined as power, water, and trash service.

Maximum Per Household 

HAF Assistance

Each homeowner will be eligible for up to $15,000 through this program to 

be used only for the homeowner’s primary resident.

The maximum financial assistance per homeowner to include one or any 

combination of the eligible programs. 

Homeowner eligibility 

criteria and 

documentation 

requirements

Eligible homeowners must meet the following criteria:

o Must be a homeowner.

o Homeowner must currently own and occupy the property as their 

primary residence.

o Homeowner must describe and attest to financial hardship after 

January 21, 2020, such as job loss, a reduction in household income, 

incurred significant costs for health care or experienced other 

financial hardship due, directly, or indirectly, to the COVID-19 

pandemic.
Guam Homeowner Assistance Fund Program 13

o Household income equal to or less than 150% of the area median 

income for Guam and meets the definition of social disadvantaged as 

defined by the U.S. Department of Treasury; or equal to or less than 

either the 100% of the median income for Guam or 100% median 

income for the United States, whichever is greater. See Exhibit A –

HAF Income Limits.

Documentation requirements:

o Current utility bills (power, water and/or trash service; must be in 

arrears on one or more utility) indicating name and address of 

property

o Verification of Mortgage (bank statement/letter)

o Documentation verifying financial hardship due to COVID-19

o Tax year 2020 filed documents

o Form 1040, 1040-SR, 1040-SS, etc. and all attachments

o Applies to all adult household members

o For non-taxable income, supporting documents must be 

provided

o Self-Employed, last 12-month tax filed GRTs (if applicable)

o Valid Photo Identification (Guam ID or driver’s license, passport or 

any state issue)

o Household Member Form (all other adult household members)

o Verification of Income/Employment 

o Latest 2 Check Stubs 

o Verification of Unemployment Benefits (if applicable)

o Self-attestation on household eligibility status 

Homeowners challenged obtaining above documentations may submit a 

written self-attestation describing their household status. With regards to 

income, other acceptable documentation are paystubs, W-2s or other wage 

statements, IRS Form 1099s, tax filings, bank statements demonstrating 

regular income, or a written attestation from an employer.

Loan eligibility criteria 

specific to the program

Arrears by at least one utility service provider.

Qualified Financial 

Hardship definition and 

acceptable 

documentation

A COVID-19 qualified financial hardship is:

A material reduction in income or material increase in living expenses that 

created or increased a risk of mortgage delinquency, mortgage default, 

foreclosure, loss of utilities or home energy services that is associated with 

the coronavirus pandemic. This includes as follows:

o Reduction of income: Temporary or permanent loss of earned income 

documented after January 21, 2020.

o Increase in living expenses: Increase in out-of-pocket household expenses 

such as, medical expenses, inadequate medical insurance, increase in 

household size, costs to reconnect utility services directly related to the 

coronavirus pandemic after January 21, 2020.

Acceptable documentation:

o Employer furlough letter due to COVID-19
Guam Homeowner Assistance Fund Program 14

o Written self-attestation - applicant must explain the financial 

hardship due to COVID-19

o Mortgage verification of foreclosure or deferment*

o Utility (power, water, or trash) disconnection/reconnection receipt*

o Receipts on out-of-pocket expenses*

*Written self-attestation further explaining financial hardship must also be 

submitted.

Eligible Properties Eligible properties are primary residences in Guam that is one of the 

following:

o Single-family home

o Condominium unit

o Duplex

o One-to-four-unit dwelling

o Manufactured home permanently affixed

Ineligible properties are non-primary residences in Guam includes:

o Vacant or abandoned home

o Second home

o Investment property

o Manufactured homes not permanently affixed

Form of assistance Assistance will be structured as a non-recourse grant.

Payment requirements Disbursements will be made directly to the utility provider.

Property Assistance Program

Criteria Terms

Brief description Provide funds for payment assistance on delinquent property tax to prevent 

homeowner tax foreclosures; homeowner association delinquency fees, 

condominium association fees or common charges; prospective homeowner 

association fees, condominium association fees or common charges.

HAF may be used to pay all or a portion of a homeowner’s property tax 

delinquencies and penalties. 

Maximum Per Household 

HAF Assistance

Each homeowner will be eligible for up to $15,000 through this program to 

be used only for the homeowner’s primary resident.

The maximum financial assistance per homeowner to include one or any 

combination of the eligible programs. 

Homeowner eligibility 

criteria and 

documentation 

requirements

Eligible homeowners must meet the following criteria:

o Must be a homeowner.

o Homeowner must currently own and occupy the property as their 

primary residence.

o Homeowner must describe and attest to financial hardship after 

January 21, 2020, such as job loss, a reduction in household income, 

incurred significant costs for health care or experienced other 

financial hardship due, directly, or indirectly, to the COVID-19 

pandemic.
Guam Homeowner Assistance Fund Program 15

o Household income equal to or less than 150% of the area median 

income for Guam and meets the definition of social disadvantaged as 

defined by the U.S. Department of Treasury; or equal to or less than 

either the 100% of the median income for Guam or 100% median 

income for the United States, whichever is greater. See Exhibit A –

HAF Income Limits.

Documentation requirements:

o Property tax bill (must be delinquent at least by one payment) 

o Current utility bill indicating name and address of property 

o Documentation verifying financial hardship due to COVID-19

o Tax year 2020 filed documents

o Form 1040, 1040-SR, 1040-SS, etc. and all attachments

o Applies to all adult household members

o For non-taxable income, supporting documents must be 

provided

o Self-Employed, last 12-month tax filed GRTs (if applicable)

o Valid Photo Identification (Guam ID or driver’s license, passport or 

any state issue)

o Household Member Form (all other adult household members)

o Verification of Income/Employment 

o Latest 2 Check Stubs 

o Verification of Unemployment Benefits (if applicable)

o Self-attestation on household eligibility status 

Homeowners challenged obtaining above documentations may submit a 

written self-attestation describing their household status. With regards to 

income, other acceptable documentation are paystubs, W-2s or other wage 

statements, IRS Form 1099s, tax filings, bank statements demonstrating 

regular income, or a written attestation from an employer.

Loan eligibility criteria 

specific to the program

Delinquent by at least one payment.

Qualified Financial 

Hardship definition and 

acceptable 

documentation

A COVID-19 qualified financial hardship is:

A material reduction in income or material increase in living expenses that 

created or increased a risk of mortgage delinquency, mortgage default, 

foreclosure, loss of utilities or home energy services that is associated with 

the coronavirus pandemic. This includes as follows:

o Reduction of income: Temporary or permanent loss of earned income 

documented after January 21, 2020.

o Increase in living expenses: Increase in out-of-pocket household expenses 

such as, medical expenses, inadequate medical insurance, increase in 

household size, costs to reconnect utility services directly related to the 

coronavirus pandemic after January 21, 2020.

Acceptable documentation:

o Employer furlough letter due to COVID-19

o Written self-attestation - applicant must explain the financial 

hardship due to COVID-19
Guam Homeowner Assistance Fund Program 16

o Mortgage verification of foreclosure or deferment*

o Utility (power, water, or trash) disconnection/reconnection receipt*

o Receipts on out-of-pocket expenses*

*Written self-attestation further explaining financial hardship must also be 

submitted.

Eligible Properties Eligible properties are primary residences in Guam that is one of the 

following:

o Single-family home

o Condominium unit

o Duplex

o One-to-four-unit dwelling

o Manufactured home permanently affixed

Ineligible properties are non-primary residences in Guam includes:

o Vacant or abandoned home

o Second home

o Investment property

o Manufactured homes not permanently affixed

Form of assistance Assistance will be structured as a non-recourse grant.

Payment requirements Disbursements will be made directly to the Treasurer of Guam (tax collection 

agency).

Application Process 

The application will be designed to meet the eligibility and compliance requirements while reducing the 

documentation burden to the applicant, as recommended by Treasury. Program staff will evaluate and 

review applications for eligibility based on program requirements. In addition to their application, 

applicants will be required to submit specific documentation to support their application. HAF staff will 

contact and assist applicants should additional documentation or explanation be needed to complete the 

application process. Applications will be made available at DOA’s office and can be downloaded on the 

website www.doa.guam.gov . Furthermore, DOA will ensure applications and other program documents 

are provided in forms that are accessible to persons with disabilities.

Other Available Assistance

DOA recognizes the importance of ensuring homeowners are aware of all available assistance programs. 

DOA will connect homeowners with other assistance programs as needed. One of the programs 

homeowners will be encouraged to apply for is the Low Income Home Water Assistance Program (“LIWAP”) 

prior to receiving utility relief assistance. 

Targeting Efforts, Public Communications and Outreach Activities

Not less than 60% of Guam’s HAF amounts will be used for qualified expenses that assist homeowners with 

incomes equal to or less than 100% of the area median income for Guam or equal to or less than 100% of 

the median income for the United States, whichever is greater. Any amount not made available to 

homeowners that meet this income-targeting requirement will be prioritized for assistance to socially 

disadvantaged individuals, with funds remaining after such prioritization being made available for other 

eligible homeowners.
Guam Homeowner Assistance Fund Program 17

DOA plans to conduct marketing and outreach efforts to target homeowners who meet the income 

requirements and the socially disadvantaged population. The program will create and issue press releases, 

FAQs, educational materials (such as print ads and fliers) to direct and social media outlets, businesses, 

mortgage servicers, community organizations and all village mayors on the island. With Guam’s population 

defined as “socially disadvantaged” and 59% of homeowner’s household income is below the 150% area 

median income, DOA is confident its marketing efforts will reach the targeted populations. 

Defining Socially Disadvantaged Individuals

One of the indicators identified in the Treasury Guidance defines “socially disadvantaged individuals” as being 

a resident of a U.S. Territory. With Guam being a U.S. Territory, all eligible homeowners living in Guam meets 

the Treasury’s definition of being socially disadvantaged. 

Guam’s HAF program will capture socially disadvantaged individuals through its application process. The 

application form will include two questions “Are you a resident of Guam? ___ Yes ___ No. If yes, how long 

____ years ____ months”. The data will be collected throughout the implementation of the program.

Collaboration with Other HAF Participants

As required by Treasury, DOA will collaborate and partner with local agencies, housing counseling providers 

and financial institutions that hold mortgage portfolios similar to HAF participants and targeting 

requirements. These agencies include, but not limited to, Guam Housing Corporation, Guam Housing and 

Urban Renewal Authority, Veterans Affair, US Department of Agriculture and Guam’s Banking Association.

Housing Counseling and Legal Services

Housing counseling services is limited in Guam. The Guam Housing Urban and Renewal Authority (GHURA) 

is the sole HUD-certified Housing Counseling Agency in Guam. With established partnerships in place with 

GHURA through the Emergency Rental Assistance Program, DOA plans to collaborate with GHURA to offer 

housing counseling to eligible homeowners in the HAF program, especially those who are engaged in loss 

mitigation. The counseling, which can be obtained for free, will help homeowners navigate through various 

affordable long-term recovery solutions with their mortgage services and provide financial education that 

will help homeowners maintain a successful homeownership experience following reinstatement. 

Counseling services will be offered through a referral and tracking system between the HAF program and 

GHURA.

With limited counseling services, a possible option homeowners may receive housing counseling with HAF’s 

newly hired program director. She is certified in homeownership counseling through the NeighborWorks 

Center for Homeownership Education and Counseling Certification (NCHEC) program. NeighborWorks 

America’s counseling certification program is recognized by the U.S. Department of Housing and Urban 

Development (HUD) as setting industry-wide standards for the industry. This option may be implemented 

as needed.

In addition, Guam’s HAF program may also refer homeowners to obtain legal services with non-profit 

organizations, such as the Guam Legal Services and/or Micronesian Legal Services Corporation. Both 

organizations service low income families, persons with disabilities and populations with the most 

vulnerabilities, and provide free legal services to clients. HAF funds may be used for legal services provided 

the household has not exceeded their maximum assistance amount. 

Prioritization of Assistance

In accordance with U.S. Treasury Guidance, not less than 60% of HAF funds made available will be used for 

qualified expenses that assist homeowners having incomes equal to or less than 100% of the area median 
Guam Homeowner Assistance Fund Program 18

income or equal to or less than 100% of the median income for the United States, whichever is greater. 

Any remaining amount not made available to homeowners that meet this income-targeting requirement 

will be prioritized for assistance to homeowners having incomes equal to or less than 150% of the area 

median income and are socially disadvantaged individuals. 

Guam’s HAF program targets eligible low- and moderate-income homeowners. The assessment provided in 

the plan highlights the need for the territory to prioritize mortgage, utility, and property relief assistance 

with its HAF allocation. 

The program considers six main populations in need and by priority:

1. loans in foreclosure

2. utility accounts scheduled for disconnection

3. loans in forbearance

4. loans in delinquency

5. utility accounts in arrears or payment plan

6. homeowner association late payment and fees

7. property tax delinquency

These priority populations will be identified by the homeowner’s account status indicated on verification 

forms completed by mortgage lenders, utility providers, homeowner associations and property taxation 

servicer at the onset of the eligibility process. This will be a two week timeframe whereby the homeowner 

applies for assistance, the servicer confirms the delinquent amount, and payment is processed. These 

efforts reduce the need for time-consuming negotiations so funds can be disbursed efficiently and 

effectively. It prioritizes homeowners unpaid balance and associated fees to be paid expeditiously to bring 

their loan and/or account current and for foreclosures to be reinstated. 

For homeowners who are in immediate threat to housing stability, such as accounts in foreclosure and/or

scheduled for utility disconnection (top two priority populations), their applications will be processed first. 

Mortgage lenders and utility providers participating in the HAF program have agree to pause proceedings 

on these accounts once application eligibility is confirmed by the program. Applications with higher risks 

will be processed within one week. Adjustments to the processes will be made at any time needed.

Financial Assistance

Guam’s HAF program maximum amount of $15,000 per homeowner is estimated to provide up to six 

months of mortgage and utility assistance, and up to two property tax payments. The maximum amount is 

determined by the needs assessment and discussions with mortgage lenders and utility providers. Loans on 

foreclosure, forbearance or delinquent status are usually behind 3 to 6 months of payments and utility 

accounts with arrears status are anywhere from 30 to 90+ days late. The HAF allocation is estimated to 

assist between 780 to 1,600 eligible homeowners.

Performance Goals (updated)

Program Design Element Metrics of Success Goal

Mortgage Assistance

(Delinquent and prospective 

payment assistance on mortgage 

payments, contract for deed or 

Number of home losses avoided 

due to HAF funds.

Prevent 400 home losses within 

12 months
Guam Homeowner Assistance Fund Program 19

land contract, and other housing 

related costs.

Utility Assistance

(Delinquent and prospective 

payment assistance on power, 

water and trash services)

Number of utility delinquencies 

paid off.

Prevent 200 homeowners in 

instable housing conditions by 

paying off delinquent utility bills

Property Assistance

(Delinquent property taxes to 

prevent homeowner tax 

foreclosures; homeowner’s 

association fees, condominium 

association fees, or common 

charges)

Number of tax-related and 

property delinquencies paid off.

Prevent the replacement of 100 

homeowners by paying off 

delinquent property taxes and/or 

other property related 

payments.

Guam’s HAF overall program progress will be measured by the total number of homeowners assisted and 

success will be measured by the number of foreclosures prevented, the number of homeowners assisted in 

reducing their mortgage delinquency, utility arrears and property delinquency among the targeted 

populations. 

DOA will develop a variety of performance-based reports to manage and monitor the program. Specific 

data contained in the reports will include, but not limited to, the following:

- Homeowners: income, race, gender, ethnicity, property location, type of relief assistance (mortgage 

delinquency, utility arrears, property delinquency, etc.) received, financial disbursement per 

assistance program), legal assistance and housing counseling services (HAF funded and unfunded).

- Assistance Programs: servicer participation rate, number of homeowners assisted, total funds 

disbursed per program, and average arrearage (amount and number of months).

Guam’s HAF will use DOA will provide the Treasury all required reports including: 1) demographic 

information on all borrowers; 2) status and final outcomes of borrowers served; 3) quarterly progress 

reports; 4) annual program report on the impact of the program; and 5) any additional reports as 

requested.

DOA will communicate Guam’s HAF performance progress quarterly through informational presentations, 

infographics, circulars, and press releases. Program updates will be shared through the following: 1) 

interviews on local radio and tv shows, 2) virtual sessions with service providers during community council 

meetings , 3) disbursements to village mayors, cultural groups, and non-profit organizations, and 4) posts 

on various social media platforms. Progress performance information sheet will be developed in various 

languages. All program announcements will be uploaded on DOA’s website doa.guam.gov.

Readiness (updated)

Staffing, Systems and Contractors

DOA is the lead government entity responsible for providing 50+ Government of Guam Agencies under 

the Executive Branch with essential administrative, human resource, financial control and reporting, cash 

management, procurement, and policy direction for the execution of government-wide support services. 

With specific to Guam’s HAF, DOA will utilize its existing personnel to perform human resource services, 

financial matters, and information technology activities for the program. DOA plans to hire additional
Guam Homeowner Assistance Fund Program 20

staff to manage, administer and monitor the delivery of HAF services. Newly hired HAF staff will include 

a program manager, three program coordinators, two customer service representatives and one 

administrative assistant. There will be no program services contracted out.

DOA identified a planning and development team responsible for the startup on Guam’s HAF program. 

The team has completed the following tasks: Guam’s HAF plan, press release, administration documents,

and policies and procedures. For next steps, the team plans to finalize program documents, train staff, 

and launch the program.

Since the submission of Guam’s HAF plan in August 2021 to the U.S. Treasury, the program continued to 

build capacity to ensure program readiness for implementation. The tasks completed thus far are as 

follows:

- Staffing - hiring of seven program staff (program director, supervisor, three program coordinators 

and two customer service representatives).

- Development of policies and procedures that includes applicant eligibility, application process, 

prioritization of funds, eligible homeowner financial assistance, quality assurance, reporting, 

record management, etc.

- Established application submission - web portal, download fillable, and hard copy.

- Development program database monitoring and tracking system.

- Media and outreach activities - issuance of press release and frequently asked questions posted on 

website, informational presentations conducted to mortgage lenders, utility providers, cultural 

groups, homeowner associations, and non-profit organizations.

- Development of program forms such as pre-application, application checklist, verification forms 

for mortgage lender, utility providers and homeowner association, self-attestation, financial 

assistance approval and tracking, and application process flow.

- Established relationship with mortgage lenders, utility providers, housing counseling organization, 

and legal service providers.

- Established case management portal for application intake, managing application and case 

processing, program eligibility, case adjudication and payment disbursements.

Use of Initial Payment (updated)

DOA received $1,358,756.20 of HAF funds from the Treasury in May 2021. As of June 30, 2021, no HAF 

funds has been disbursed and obligated, nor have applications been accepted for the program. DOA plans 

to launch Guam’s HAF program two weeks from the approval date by Treasury.

Since the submission of Guam’s HAF plan in August 2021, DOA has expensed $105,000 of its initial 10% 

payment on administrative costs. These costs were services performed for researching, planning, needs 

assessment, marketing, salaries and supplies.
Guam Homeowner Assistance Fund Program 21

Budget (updated)

Guam Homeowner Assistance Fund Program

3 Project Year Budget Period

Program Year 1 Year 2 Year 3 Grand Total

Mortgage Assistance

 mortgage payment assistance

 (principal & interest reduction fees, escrow)

 reinstatement

 (principal & interest reduction fees, escrow)

$3,849,428

$700,000

$840,000

$210,000

$800,000

$200,000

$5,489,428

$1,110,000

Utility Assistance

 power payment assistance

 water payment assistance

 Trash removal service payment assistance

 late and interest fees

$1,500,000 $800,000 $800,000 $3,100,000

Property Assistance

 homeowner association payments (late & fees)

 tax delinquencies & fees

$1,000,000 $400,000 $400,000 $1,800,000

Other Housing Related Expenses

 legal services

$25,000 $15,000 $10,000 $50,000

Total Program $7,074,428 $2,265,000 $2,210,000 $11,549,428

Administrative Year 1 Year 2 Year 3 Grand Total

Salaries

 12 full time positions

 Program Director, Supervisor, Program 

 Coordinator (6), Customer Service

 Representative (3), Administrative Assistant

$459,923 $459,923 $399,492 $1,319,338

Fringe Benefits

 12 full time positions

 Program Director, Supervisor, Program 

 Coordinator (6), Customer Service

 Representative (3), Administrative Assistant

$223,725 $223,725 $191,048 $638,498

Marketing & Outreach $10,500 $1,500 $1,500 $13,500

Other Expenses (office rent, utilities) $9,000 $9,000 $9,000 $27,000

Equipment & Supplies $36,380 $2,000 $1,418 $39,798

Total Administrative $739,528 $696,148 $602,458 $2,038,134

Grand Total Budget Amount $7,813,956 $2,961,148 $2,812,458 $13,587,562
Guam Homeowner Assistance Fund Program 22

Point of Contact

The Point of Contacts identified for Guam’s HAF are as follows:

Lead Government Agency Guam Department of Administration

Physical Address: GITC Building 590 S Marine Corps Dr.

Tamuning, Guam 96913

Mailing Address: P.O. Box 884 Hagatna, Guam 96932

Website: www.doa.guam.gov

Primary Contact Edward Birn, Director

Email: edward.birn@doa.guam.gov

Contact: (671) 475-1101

Secondary Contact Bernadine Gines, Deputy Director

Email: bernadine.gines@doa.guam.gov

Contact: (671) 475-1101

Fax: (671) 477-6788
Guam Homeowner Assistance Fund Program 23

Exhibit A

Fiscal Year 2021 HAF Income Limits for Guam

100% HAF Income Limits

1 

Person

2 

Person

3 

Person

4

Person

5 

Person

6

Person

7

Person

8

Person

9

Person

10

Person

100% Area 

Median 

Income

$47,750 $54,600 $61,400 $68,200 $73,700 $79,150 $84,600 $90,050 $95,500 $100,950

100% U.S. 

Median 

Income

$79,900 $79,900 $79,900 $79,900 $79,900 $79,900 $79,900 $79,900 $79,900 $79,900

Greater of 

100% Area 

Median 

Income or 

100% U.S. 

Median 

Income

$79,900 $79,900 $79,900 $79,900 $79,900 $79,900 $84,600 $90,050 $95,500 $100,950

150% HAF Income Limits for Guam

1 

Person

2 

Person

3 

Person

4

Person

5 

Person

6

Person

7

Person

8

Person

9

Person

10

Person

150% Area

Median

Income

$71,650 $81,850 $92,100 $102,300 $110,500 $118,700 $126,900 $135,050 $143,250 $151,450

100% U.S. 

Median 

Income

$79,900 $79,900 $79,900 $79,900 $79,900 $79,900 $79,900 $79,900 $79,900 $79,900

Greater of

150% Area

Median

Income or

100% U.S.

Median

Income

$79,900 $81,850 $92,100 $102,300 $110,500 $118,700 $126,900 $135,050 $143,250 $151,450
Guam Homeowner Assistance Fund Program 24

Guam’s HAF Plan Revisions (November 2021)

o Mortgage Assistance Program: Contracts for Deed or Land Contracts is an eligible mortgage type 

assistance.

o Updated Budget:

Guam Homeowner Assistance Fund Program

3 Project Year Budget Period

Program Year 1 Year 2 Year 3 Grand Total

Mortgage Assistance

 mortgage payment assistance

 (principal & interest reduction fees, escrow)

 reinstatement

 (principal & interest reduction fees, escrow)

$3,849,428

$700,000

$840,000

$210,000

$800,000

$200,000

$5,489,428

$1,110,000

Utility Assistance

 power payment assistance

 water payment assistance

 Trash removal service payment assistance

 late and interest fees

$1,500,000 $800,000 $800,000 $3,100,000

Property Assistance

 homeowner association payments (late & fees)

 tax delinquencies & fees

$1,000,000 $400,000 $400,000 $1,800,000

Other Housing Related Expenses

 legal services

$25,000 $15,000 $10,000 $50,000

Total Program $7,074,428 $2,265,000 $2,210,000 $11,549,428

Administrative Year 1 Year 2 Year 3 Grand Total

Salaries

 12 full time positions

 Program Director, Supervisor, Program 

 Coordinator (6), Customer Service

 Representative (3), Administrative Assistant

$459,923 $459,923 $399,492 $1,319,338

Fringe Benefits

 12 full time positions

 Program Director, Supervisor, Program 

 Coordinator (6), Customer Service

 Representative (3), Administrative Assistant

$223,725 $223,725 $191,048 $638,498

Marketing & Outreach $10,500 $1,500 $1,500 $13,500

Other Expenses (office rent, utilities) $9,000 $9,000 $9,000 $27,000

Equipment & Supplies $36,380 $2,000 $1,418 $39,798

Total Administrative $739,528 $696,148 $602,458 $2,038,134

Grand Total Budget Amount $7,813,956 $2,961,148 $2,812,458 $13,587,562