I 
119TH CONGRESS 
1ST SESSION H. R. 5990 
To require the Secretary of Housing and Urban Development to establish 
a pilot program to provide grants to implementing organizations to 
administer a whole-home repairs program for eligible homeowners and 
eligible landlords, and for other purposes. 
IN THE HOUSE OF REPRESENTATIVES 
NOVEMBER 7, 2025 
Ms. WILLIAMS of Georgia (for herself and Mr. DOWNING) introduced the 
following bill; which was referred to the Committee on Financial Services 
A BILL 
To require the Secretary of Housing and Urban Development 
to establish a pilot program to provide grants to imple-
menting organizations to administer a whole-home re-
pairs program for eligible homeowners and eligible land-
lords, and for other purposes. 
Be it enacted by the Senate and House of Representa-
tives of the United States of America in Congress assembled, 
SECTION 1. SHORT TITLE. 
This Act may be cited as the ‘‘Whole-Home Repairs 
Act of 2025’’. 
SEC. 2. WHOLE-HOME REPAIRS PILOT PROGRAM. 
(a) DEFINITIONS.—In this section: 
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(1) AFFORDABLE UNIT.—The term ‘‘affordable 
unit’’ means a unit for which the monthly rental 
payment is not more than 30 percent of the gross 
income of an individual earning at or below 80 per-
cent of the area median income, as defined by the 
Secretary. 
(2) ASSISTED UNIT.—The term ‘‘assisted unit’’ 
means a unit that undergoes repair or rehabilitation 
work through a whole-home repairs program admin-
istered by an implementing organization under this 
section. 
(3) ELIGIBLE HOMEOWNER.—The term ‘‘eligi-
ble homeowner’’ means a homeowner— 
(A) with a household income that— 
(i) is not more than 80 percent of the 
area median income; or 
(ii) meets the income eligibility re-
quirements for receiving assistance or ben-
efits under a specified program, as defined 
in paragraph (11); and 
(B) who is— 
(i) an owner of record as evidenced by 
a publicly recorded deed and occupies the 
home on which repairs are to be conducted 
as their principal residence; 
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(ii) an owner-occupant of the manu-
factured home on which repairs are to be 
conducted; or 
(iii) an owner who can demonstrate an 
ownership interest in the property on 
which repairs are to be conducted, includ-
ing a person who has inherited an interest 
in that property. 
(4) ELIGIBLE LANDLORD.—The term ‘‘eligible 
landlord’’ means an individual— 
(A) who owns, as determined by the rel-
evant implementing organization, fewer than 10 
eligible rental properties, with a majority of af-
fordable units and not more than 50 total units, 
operated as primary residences in which a ma-
jority ownership interest is held by the indi-
vidual, the spouse of the individual, or the de-
pendent children of the individual, or any close-
ly held legal entity controlled by the individual, 
the spouse of the individual, or the dependent 
children of the individual, either individually or 
collectively; and 
(B) who agrees to the provisions described 
in subsection (b)(3). 
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(5) ELIGIBLE RENTAL PROPERTY.—The term 
‘‘eligible rental property’’ means a residential prop-
erty that— 
(A) is leased, or offered exclusively for 
lease, as a primary residence by an eligible 
landlord; and 
(B) includes affordable units. 
(6) FORGIVABLE LOAN.—The term ‘‘forgivable 
loan’’ means a loan— 
(A) made to an eligible landlord; 
(B) that is secured by a lien recorded 
against a residential property; and 
(C) that may be forgiven by the imple-
menting organization not later than the date 
that is 3 years after the completion of the re-
pairs if the eligible landlord has maintained 
compliance with the loan agreement described 
in subsection (b)(3). 
(7) IMPLEMENTING ORGANIZATION.—The term 
‘‘implementing organization’’— 
(A) means a unit of general local govern-
ment or a State that— 
(i) will administer a whole-home re-
pairs program through an agency, depart-
ment, or other entity; or 
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(ii) enter into agreements with 1 or 
more local governments, municipal authori-
ties, other governmental authorities, in-
cluding a tribally designated housing enti-
ty, or qualified nonprofit organizations, to 
administer a whole-home repairs program 
as a subrecipient; and 
(B) does not include a redundant entity in 
a jurisdiction already served by a grantee under 
subsection (b). 
(8) INDIAN TRIBE.—The term ‘‘Indian tribe’’ 
has the meaning given the term in section 4 of the 
Native American Housing Assistance and Self-De-
termination Act of 1996 (25 U.S.C. 4103). 
(9) QUALIFIED NONPROFIT.—The term ‘‘quali-
fied nonprofit’’ means a nonprofit organization 
that— 
(A) has received funding, as a recipient or 
subrecipient, through— 
(i) the Community Development Block 
Grant program under title I of the Hous-
ing and Community Development Act of 
1974 (42 U.S.C. 5301 et seq.); 
(ii) the HOME Investment Partner-
ships program under subtitle A of title II 
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of the Cranston-Gonzalez National Afford-
able Housing Act (42 U.S.C. 12741 et 
seq.); 
(iii) the Lead-Based Paint Hazard 
Reduction grant program under section 
1011 of the Residential Lead-Based Paint 
Hazard Reduction Act of 1992 (42 U.S.C. 
4852) or a grant under the Healthy 
Homes Initiative administered by the Sec-
retary pursuant to sections 501 and 502 of 
the Housing and Urban Development Act 
of 1970 (12 U.S.C. 1701z–1, 1701z–2); 
(iv) the Self-Help and Assisted Home-
ownership Opportunity program authorized 
under section 11 of the Housing Oppor-
tunity Program Extension Act of 1996 (42 
U.S.C. 12805 note); 
(v) a rural housing program under 
title V of the Housing Act of 1949 (42 
U.S.C. 1471 et seq.); or 
(vi) the Neighborhood Reinvestment 
Corporation established under the Neigh-
borhood Reinvestment Corporation Act (42 
U.S.C. 8101 et seq.); 
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(B) has coordinated, performed, or other-
wise been engaged in weatherization, lead reme-
diation, or home-repair work for not less than 
2 years; 
(C) has been certified by the Environ-
mental Protection Agency, or by a State au-
thorized by the Environmental Protection Agen-
cy to administer a certification program, as— 
(i) eligible to carry out activities 
under the lead renovation, repair and 
painting program; or 
(ii) a Home Certification Organization 
under the Energy Star program estab-
lished by section 324A of the Energy Pol-
icy and Conservation Act (42 U.S.C. 
6294a) or the WaterSense program under 
section 324B of that Act (42 U.S.C. 
6294b), or recognized or otherwise ap-
proved by the Environmental Protection 
Agency as a Home Certification Organiza-
tion under either of those programs; or 
(D) is a community development financial 
institution, as defined in section 103 of the 
Community Development Banking and Finan-
cial Institutions Act of 1994 (12 U.S.C. 4702). 
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(C) the Commonwealth of Puerto Rico; 
(D) any territory or possession of the 
United States; and 
(E) an Indian tribe. 
(13) TRIBALLY
DESIGNATED
HOUSING
ENTI-
TY.—The term ‘‘tribally designated housing entity’’ 
has the meaning given the term in section 4 of the 
Native American Housing Assistance and Self-De-
termination Act of 1996 (25 U.S.C. 4103). 
(14) 
WHOLE-HOME
REPAIRS.—The 
term 
‘‘whole-home repairs’’ means modifications, repairs, 
or updates to homeowner or renter-occupied units to 
address— 
(A) physical and sensory accessibility for 
individuals with disabilities and older adults, 
such as bathroom and kitchen modifications, in-
stallation of grab bars and handrails, guards 
and guardrails, lifting devices, ramp additions 
or repairs, sidewalk addition or repair, or door-
way or hallway widening; 
(B) habitability and safety concerns, such 
as repairs needed to ensure residential units are 
fit for human habitation and free from defective 
conditions or health and safety hazards; or 
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(C) energy and water efficiency, resilience, 
and weatherization. 
(b) PILOT PROGRAM.— 
(1) ESTABLISHMENT.—Not later than 1 year 
after the date of enactment of this Act, the Sec-
retary shall establish a pilot program to provide 
grants to implementing organizations to administer 
a whole-home repairs program for eligible home-
owners and eligible landlords. 
(2) USE OF FUNDS.—An implementing organi-
zation that receives a grant under this subsection— 
(A) shall provide grants to eligible home-
owners to implement whole-home repairs not 
covered by other Federal home repair programs 
and up to a maximum amount per unit, which 
maximum amount should— 
(i) reflect local construction costs and 
the level of repairs needed in each unit; 
and 
(ii) be calculated and approved by the 
Secretary; 
(B) shall provide loans, which may be for-
givable, to eligible landlords to implement 
whole-home repairs not covered by other Fed-
eral home repair programs for individual afford-
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able units, public and common use areas within 
the property, and common structural elements 
up to a maximum amount per unit, area, or ele-
ment, as applicable, which maximum amount 
should— 
(i) reflect local construction costs; and 
(ii) be calculated and approved by the 
Secretary; 
(C) shall evaluate, or provide assistance to 
eligible homeowners and eligible landlords to 
evaluate, whole-home repair program funds pro-
vided under this subsection with Federal, State, 
and local home repair programs to provide the 
greatest benefit to the greatest number of eligi-
ble landlords and eligible homeowners and avoid 
duplication of benefits and redundancies; 
(D) shall ensure that— 
(i) all repairs funded or facilitated 
through an award under this subsection 
have been completed; 
(ii) if repairs are not completed and 
the plan for whole-home repairs is not up-
dated to reflect the new scope of work, 
that the loan or grant is repaid on a pro-
rated basis based on completed work; and 
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(iii) any unused grant or loan balance 
is returned to the implementing organiza-
tion, and is reused by the implementing or-
ganization for a new whole-home repair 
grant or loan under this subsection; 
(E) may use not more than 5 percent of 
the awarded funds to carry out related func-
tions, including workforce training for home re-
pair professions, which shall be related to ef-
forts to increase the number of home repairs 
performed and approved by the Secretary; 
(F) may use not more than 10 percent of 
the awarded funds for administrative expenses; 
and 
(G) shall comply with Federal accessibility 
requirements and standards under applicable 
Federal fair housing and civil rights laws and 
regulations, including section 504 of the Reha-
bilitation Act of 1973 (29 U.S.C. 794). 
(3) LOAN AGREEMENT.—In a loan agreement 
with an eligible landlord under this subsection, an 
implementing organization shall include provisions 
establishing that the eligible landlord shall, for each 
eligible rental property for which a loan is used to 
fund repairs under this subsection— 
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(A) comply with Federal accessibility re-
quirements and standards under applicable 
Federal fair housing and civil rights laws and 
regulations, including section 504 of the Reha-
bilitation Act of 1973 (29 U.S.C. 794); and 
(B)(i) if the landlord is renting the as-
sisted units available in the eligible rental prop-
erty to tenants receiving tenant-based rental as-
sistance under section 8(o) of the United States 
Housing Act of 1937 (42 U.S.C. 1437f(o)), 
under another tenant-based rental assistance 
program administered by the Secretary or the 
Secretary of Agriculture, or under a tenant- 
based rental subsidy provided by a State or 
local government, comply with the program re-
quirements under the relevant tenant-based 
rental assistance program; or 
(ii) if the eligible landlord is not renting to 
tenants receiving rental-based assistance as de-
scribed in clause (i)— 
(I)(aa) offer to extend the lease of 
current tenants on current terms, other 
than the terms described in subclause (iv) 
for not less than 3 years beginning after 
the completion of the repairs, unless the 
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lease is terminated due to failure to pay 
rent, performance of an illegal act within 
the rental unit, or a violation of an obliga-
tion of tenancy that the tenants failed to 
correct after notice; and 
(bb) if the tenant of an assisted unit 
moves out of the assisted unit at any point 
in the 3-year period following the loan 
agreement, maintain the unit as an afford-
able unit for the remainder of the 3-year 
period; 
(II) provide documentation verifying 
that the property, upon completion of ap-
proved renovations, has met all applicable 
State and local housing and building codes; 
(III) attest that the landlord has no 
known serious violations of renter protec-
tions that have resulted in fines, penalties, 
or judgments during the preceding 10 
years; and 
(IV) cap annual rent increases for 
each assisted unit at 5 percent of base rent 
or inflation, whichever is lower, for not less 
than 3 years beginning after the comple-
tion of the repairs. 
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(v) how the implementing organization 
plans to process and verify applications for 
grants from eligible homeowners and appli-
cations for loans from eligible landlords; 
and 
(vi) such other information as the 
Secretary requires to determine the ability 
of an applicant to carry out a program 
under this subsection. 
(B) CONSIDERATIONS.—In making awards 
under this subsection, the Secretary shall— 
(i) with respect to applications sub-
mitted by States other than the District of 
Columbia and the territories of the United 
States, prioritize those applications with a 
demonstrated plan to— 
(I) make a good faith effort to 
implement the pilot program in every 
jurisdiction; and 
(II) 
provide 
non-metropolitan 
areas, or subrecipients serving non- 
metropolitan areas if applicable, with 
a share of total funds commensurate 
to their population; 
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(ii) aim to select applicants so that 
the awardees collectively span diverse geog-
raphies, with an intent to understand the 
impact of the pilot program under this 
subsection in urban, suburban, rural, and 
Tribal settings; and 
(iii) not disqualify implementing orga-
nizations that were awarded grants under 
the pilot program in prior application cy-
cles. 
(5) PROGRAM
INFORMATION.—The Secretary 
shall make available to grant recipients under this 
subsection information regarding existing Federal 
programs for which grant recipients may coordinate 
or provide assistance in coordinating applications for 
those programs in accordance with paragraph 
(2)(C). 
(6) GRANT NUMBER.—In each year in which an 
award is made under this subsection, the Secretary 
shall award assistance to— 
(A) not less than 2, and not more than 10, 
implementing 
organizations, 
as 
application 
numbers and funding permit; and 
(B) not more than 1 implementing organi-
zation in any State. 
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(7) LOANS
THAT
ARE
NOT
FORGIVEN.—If a 
loan made by an implementing organization under 
paragraph (2)(B) is not forgiven, the loan repay-
ment funds shall be reused by the implementing or-
ganization for a new whole-home repair grant or 
loan under this subsection. 
(8) SUPPLEMENT, NOT
SUPPLANT.—Amounts 
awarded under this subsection to implementing orga-
nizations shall supplement, not supplant, other Fed-
eral, State, and local funds made available to those 
entities. 
(9) STREAMLINING
PROGRAM
DELIVERY
AND 
ENSURING EFFICIENCY.—To the extent possible, in 
carrying out the pilot program under this subsection, 
the Secretary shall— 
(A) endeavor to improve efficiency of serv-
ice delivery, as well as the experience of and im-
pact on the taxpayer, by encouraging pro-
grammatic collaboration and information shar-
ing across Federal, State, and local programs 
for home repair or improvement, including pro-
grams administered by the Department of Agri-
culture; and 
(B) enhance collaboration and cross-agency 
streamlining efforts that reduce the burdens of 
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multiple income verification processes and ap-
plications on the eligible homeowner, the eligible 
landlord, the implementing organization, and 
the Federal Government, including by estab-
lishing assistance application procedures for in-
come eligibility under this subsection that rec-
ognize income eligibility determinations for as-
sistance using any of the criteria under sub-
section (a)(3)(A) that have been used for assist-
ance applications during the 1-year period pre-
ceding the date on which an eligible homeowner 
or eligible landlord applies for assistance under 
this subsection. 
(10) REPORTING REQUIREMENTS.— 
(A) ANNUAL
REPORT.—An implementing 
organization that receives a grant under this 
subsection shall submit to the Secretary an an-
nual report on initial funding that includes— 
(i) the number of units served, includ-
ing reporting on both homeownership and 
rental units, as well as accessible units; 
(ii) the average cost per unit for 
modifications or repairs and the nature of 
those modifications or repairs, including 
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reporting on accessibility and both home-
ownership and rental units; 
(iii) the number of applications re-
ceived, served, denied, or not completed, 
disaggregated by geographic area; 
(iv) the aggregated demographic data 
of grant recipients, which may include data 
on income range, urban, suburban, and 
rural residency, age, and racial and ethnic 
identity; 
(v) the aggregated demographic data 
of loan recipients, which may include data 
on income range, urban, suburban, and 
rural residency, age, and racial and ethnic 
identity; 
(vi) an affirmation that the implemen-
tation organization has complied with the 
applicable regulations, including compli-
ance with Federal accessibility require-
ments; 
(vii) in the first year of receiving a 
grant, and as certified in subsequent re-
ports, a comprehensive plan to prevent 
waste, fraud, and abuse in the administra-
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tion of the pilot program, which shall in-
clude, at a minimum— 
(I) a policy enacted and enforced 
by the implementing organization to 
monitor ongoing expenditures under 
this subsection and ensure compliance 
with applicable regulations; 
(II) a policy enacted and en-
forced by the implementing organiza-
tion to detect and deter fraudulent ac-
tivity, including fraud occurring in in-
dividual projects and patterns of 
fraud by parties involved in the ex-
penditure of funds under this sub-
section; 
(III) a statement setting forth 
any violations detected by the imple-
menting organization during the pre-
vious calendar year, including details 
about steps taken to achieve compli-
ance and any remedial measures; and 
(IV) a certification by the chief 
executive or most senior compliance 
officer of the organization that the or-
ganization maintains sufficient staff 
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and resources to effectively carry out 
the above-mentioned policies; and 
(viii) such other information as the 
Secretary may require. 
(B) REPORTING
REQUIREMENT
ALIGN-
MENT.—To limit the costs of implementing the 
pilot program under this subsection, the Sec-
retary shall endeavor, to the extent possible, to 
structure reporting requirements such that they 
align with the data reporting requirements in 
place for funding streams that implementing or-
ganizations are likely to use in partnership with 
funding from this subsection, including the re-
porting requirements under— 
(i) the Community Development Block 
Grant program under title I of the Hous-
ing and Community Development Act of 
1974 (42 U.S.C. 5301 et seq.); 
(ii) the HOME Investment Partner-
ships program under subtitle A of title II 
of the Cranston-Gonzalez National Afford-
able Housing Act (42 U.S.C. 12741 et 
seq.); 
(iii) the Weatherization Assistance 
Program for low-income persons estab-
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lished under part A of title IV of the En-
ergy Conservation and Production Act (42 
U.S.C. 6861 et seq.); and 
(iv) the Native American Housing As-
sistance and Self-Determination Act of 
1996 (25 U.S.C. 4101 et seq.). 
(C) PILOT PROGRAM PERIOD REPORTS.— 
Not less frequently than twice during the period 
in which the pilot program established under 
this subsection operates, the Office of Inspector 
General of the Department of Housing and 
Urban Development shall complete an assess-
ment of the implementation of measures to en-
sure the fair and legitimate use of the pilot pro-
gram. 
(D) SUMMARY
TO
CONGRESS.—The Sec-
retary shall submit to the Committee on Bank-
ing, Housing, and Urban Affairs of the Senate 
and the Committee on Financial Services of the 
House of Representatives an annual report pro-
viding a summary of the data provided under 
subparagraphs (A) and (C) during the 1-year 
period preceding the report and all data pre-
viously provided under those subparagraphs. 
(11) FUNDING.—The Secretary— 
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(A) is authorized to use up to $30,000,000 
of funds made available as provided in appro-
priations Acts for programs administered by the 
Office of Lead Hazard Control and Healthy 
Homes to carry out the pilot program under 
this subsection; and 
(B) shall submit to the Committee on Ap-
propriations and the Committee on Banking, 
Housing, and Urban Affairs of the Senate and 
the Committee on Appropriations and the Com-
mittee on Financial Services of the House of 
Representatives a report on the appropriations 
accounts from which the Secretary will derive 
the funding under subparagraph (A). 
(12) 
ENVIRONMENTAL
REVIEW.—A 
grant 
under this subsection shall be— 
(A) treated as assistance for a special 
project for purposes of section 305(c) of the 
Multifamily Housing Property Disposition Re-
form Act of 1994 (42 U.S.C. 3547); and 
(B) subject to the regulations promulgated 
by the Secretary to implement such section. 
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(13) TERMINATION.—The pilot program estab-
lished under this subsection shall terminate on Octo-
ber 1, 2031. 
Æ 
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