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Foreword. HOME and CDBG - PDF
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1 Foreword One of the major priorities of the U.S. Department of Housing and Urban Development (HUD) is the creation of affordable housing. The Department administers several Federal programs that assist state and local governments, as well as nonprofits and other partners, to develop affordable homeownership and rental units for low-income households. Two of the most important programs are the HOME Investment Partnerships Program (HOME) and the Community Development Block Grant (CDBG) Program. Both are important resources in the local development of homes and communities. While sharing similar goals related to improving the living conditions of low-income families, each program differs in its eligible activities and requirements. In addition, there is a tremendous need for affordable housing in many communities and these needs often exceed available resources. So, it is important that state and local governments make strategic decisions about how to spend their funds. HUD s Office of Affordable Housing Programs, in partnership with HUD s Office of Block Grant Assistance, developed this guidebook as a tool for community development practitioners to assist in making these strategic choices about resources for affordable housing. Its purpose is to provide practical guidance on how both requirements are interpreted and to provide examples of how the two funding sources might be used in tandem. The Department encourages communities to seek strategic, effective, and innovative ways of using two of its most important affordable housing resources the Programs.
3 Table of Contents Introduction... 1 Making Effective Use of Program Resources... 1 Selecting Suitable Activities... 1 Complying with the Rules... 2 Leveraging CDBG and HOME... 3 Planning for CDBG and HOME... 3 Assessment of Community Needs... 3 Community-Wide Plan... 3 Individual Project Plan... 4 How to Use this Model... 4 About the Model Program Guides... 5 Chapter 1: Basics... 6 What is HOME?... 6 HOME Program Partners... 6 HOME Program Activities... 7 Eligible Costs... 7 Prohibited Activities and Costs... 8 HOME Program Requirements... 9 Income Eligibility and Verification... 9 Subsidy Limits...10 Affordability Periods...10 Maximum Value...10 Property Standards...11 HOME Administrative Requirements...11 Administrative and Planning Costs...11 Match...11 Commitment and Expenditure Deadlines...12 Program Income...12 Pre-Award Costs...12 What is CDBG?...13 CDBG Program Partners...13 CDBG Program Activities...14 Eligible CDBG Activities...14 Ineligible CDBG Activities...15 CDBG National Objectives...15 Benefit Low- and Moderate-Income Persons...16 Elimination of Slum and Blight...17 Urgent Need...17 CDBG Administrative Requirements and Caps...18 Administrative Cap...18 Low- and Moderate-Income Benefit Expenditures...18 Public Services Cap...19 Program Income...19 Timely Use of Funds...20 Pre-Award Costs...20 i
4 Chapter 2: Using for Rental Housing...26 Approaches to Creating Rental Housing...26 Acquisition...26 Tenant-Based Rental Assistance...27 Rehabilitation...28 New Construction...28 Financing and Developing Rental Housing...29 Partners...30 Forms of Assistance...33 Eligible Projects...35 Assisted Units...36 Eligible Costs...37 Property and Neighborhood Standards...38 Other Federal Requirements...38 Ongoing Compliance...38 Affordability Period...38 Rent Requirements...39 Income Eligibility...40 Ongoing Property Quality...41 Chapter 3: Using for Homeownership...42 Approaches to Creating Homebuyer Units...42 Development Approaches...42 Direct Homebuyer Subsidy Approach...43 Financing and Developing Homebuyer Housing...46 Eligible Property Types...49 Property Standards...50 Other Federal Requirements...50 Ongoing Requirements...50 Affordability Period...50 Recapture Option...51 Resale Option...51 Enforcing Resale and Recapture Provisions...53 Low-Income Targeting : American Dream Downpayment Initiative (ADDI) Side-By-Side Comparison of Downpayment Assistance Requirements By Source of Funds...55 Chapter 4: Using for Homeowner Rehabilitation...57 Approaches to Homeowner Rehabilitation...57 Minor Rehabilitation...57 Moderate/Substantial Rehabilitation...57 Reconstruction...58 Historic Preservation...59 Lead-based Paint Hazard Evaluation and Reduction...59 Code Enforcement...60 Home-based Business Rehabilitation...61 Financing and Undertaking Homeowner Rehabilitation...61 Partners...61 Forms of Financial Assistance...61 Eligible Costs...64 Property and Rehabilitation Standards...65
5 Initial Owner Incomes...66 Other Federal Requirements...67 Chapter 5: Using for Comprehensive Neighborhood Revitalization...68 Approaches to Neighborhood Revitalization...68 Planning Models for Urban Redevelopment...68 Housing Assistance...69 Property Inspections and Code Enforcement...69 Infrastructure Development and Improvement...70 Economic Development...70 Community Facilities and Public Services...71 Financing and Requirements for Neighborhood Revitalization...71 Partners...71 Approaches to Financing...72 Eligible Costs...74 Chapter 6: Making Strategic Investment Decisions...75 Step 1: Evaluate community needs and preferences...76 Step 2: Determine program types based upon needs and preferences...77 Step 3: State intended program outcomes...78 Step 4: Evaluate the strengths of v. intended outcomes...78 Step 5: Assess CDBG and HOME constraints...80 Step 6: Determine whether program should be co-funded with...81 Step 7: If co-funded program, evaluate each project to determine appropriate uses of funds...82 Administering Programs...83 Choosing Projects and Partners...83 Setting Up Adequate Financial Systems...85 Developing Efficient Reporting and Record Keeping Systems...86 Reviewing Program Performance and Compliance...87 Endnotes...90 iii
7 Introduction Two programs form the cornerstone of the U.S. Department of Housing and Urban Development s (HUD s) community development efforts the HOME Investment Partnerships Program and the Community Development Block Grant (CDBG). Across the country, funds are helping communities develop new affordable housing for both renters and homebuyers, rehabilitate existing homes, and turn around troubled neighborhoods. While share the same goals the growth and improvement of America s communities the programs differ in important ways. For example, have different eligible activities, different approaches to meeting the needs of low- and moderate-income families, and different rules regarding matching funds. By using funds strategically, communities can optimize their use of both funding sources, while working within the limitations and regulations of both programs. : Working Together to Create Affordable Housing is the community development professional s guide to using funds for affordable housing activities as strategically as possible. This model program guide begins by outlining how HOME and CDBG work and by identifying critical differences between the two programs. Next, the guide provides a detailed consideration of how to use HOME and CDBG to support rental housing, homeownership, rehabilitation, and comprehensive neighborhood revitalization projects, giving special attention to how to coordinate the two funding sources. The guide concludes with some final considerations for making strategic investment decisions using HOME and CDBG. Throughout the guide, the discussion will focus on the importance of using program resources effectively, and how this can be done to meet local housing and community development needs, and to stay in compliance with Federal program rules. Making Effective Use of Program Resources Community development is a broad term that encompasses a wide range of activities, including housing, economic development, health, employment and educational services, infrastructure, and many other activities designed to improve the welfare of neighborhoods and families. In towns, counties, and states across America, community development remains a primary concern for local leaders, the staffs of nonprofit and public agencies, and citizens alike. Yet, Federal resources for community development are limited and are not sufficient to address all of the needs in most jurisdictions. While can play an important part in addressing community development needs, they must be used wisely in order to obtain the maximum benefit from each resource. It is important that jurisdictions use these programs strategically because: Some types of activities are better suited to be undertaken under one program than the other; When combining these resources within projects, it is important that the rules for each program be followed; and Effective leveraging of CDBG and HOME resources can mean a generating a greater bang for the buck than when each program is used alone. Selecting Suitable Activities When Congress enacted the CDBG and HOME Programs, it had differing objectives in mind. CDBG was created to consolidate a number of previous categorical grant programs that had addressed a range of community needs, including water and sewer, urban renewal, model cities, historic preservation, and neighborhood development. CDBG s eligible 1
8 activities, therefore, are diverse and range from residential rehabilitation to infrastructure to public services. While it has a strong focus on meeting the needs of low-income persons, it is also designed to be flexible in order to address other concerns. The HOME Program was created nearly two decades later, to address the growing affordable housing crisis in America. Its purpose is to increase the supply of affordable housing for low-and very low-income households. There are four eligible activities under HOME and all relate directly to affordable housing. In addition, HOME has a secondary purpose of supporting the development and sustainability of nonprofit housing providers. To achieve this, it mandates that a percentage of each annual allocation be used by community housing development organizations (CHDOs) to own, develop, or sponsor housing. Given these differing legislative histories and program purposes, it is no wonder that each program has its relative strengths and limitations. For example, CDBG cannot generally be used to construct new housing. However, it can be used to develop the infrastructure in a low-income neighborhood that might support a new affordable housing development. HOME, on the other hand, can be a very good resource for building new units but cannot be used to create off-site infrastructure. So, making strategic choices about how the programs are used can help a jurisdiction address a wide range of needs within its available resources. In addition to these programmatic constraints, there are also strategic elements in deciding which program to use for which purpose. Assume, for example, that the goal of a jurisdiction s program is to improve and preserve its supply of affordable homebuyer units. Both CDBG and HOME can be used to assist with homeownership. However, only HOME mandates that units remain affordable for a specific period of time. HOME might be the preferred resource to use in this situation. Now assume a different a jurisdiction wishes to spur neighborhood revitalization by rehabilitating rental units. Its objective is not necessarily to create long-term affordability, but rather to address the blight in the area so that other businesses and homeowners will locate in the neighborhood. In this instance, both HOME and CDBG can be used for rental rehabilitation. However, CDBG might be the preferred resource because it does not mandate long-term affordability restrictions and allows for undertaking projects where the focus is not necessarily on addressing the needs of low- and moderate-income households but rather on cleaning up a blighted neighborhood. Jurisdictions that are familiar with the rules and flexibilities of both will be able to make strategic choices about investing their program resources. Complying with the Rules In addition to thinking strategically about how and when to use, jurisdictions need to ensure that both sets of program rules are met. When the programs are operated separately and are not combined in projects, jurisdictions must make sure that they carefully document compliance for each program according to the rules established by the CDBG and HOME regulations. However, CDBG and HOME are sometimes combined in a single project. When this is done, the jurisdiction must ensure that both sets of rules are met simultaneously. Since both are Federal programs with implementing statutes and regulations, neither program overrules the other. In other words, the most stringent applicable requirement from each program must always be met. For example, when a PJ invests HOME funds in a multifamily rental project, it can elect to invest its resources in selected HOME units. That is, if the jurisdiction wishes to partially rehabilitate a 10-unit rental building, it can fund two HOME units and leverage other funds to rehabilitate the remaining eight units. However, if CDBG is also invested in that same 10-unit project, the entire structure is considered to be assisted. Therefore, if the housing national objective is used it would mandate that at least 51 percent of the units be occupied by low- and moderate-income households, regardless of the amount of CDBG assistance in the project. Under HOME rules, only the two assisted units would need to be occupied by income-eligible families, but CDBG mandates that low- or moderateincome families occupy at least six units. So, it is important for the jurisdiction to understand the rules of both programs in order to be sure that all activities are compliant. 2
9 Leveraging CDBG and HOME Jurisdictions need to be familiar with how CDBG and HOME work together so that they can get the greatest impact for their investments. As noted above, there are differing instances when either CDBG or HOME is the most appropriate tool for a particular task at hand. However, sometimes when those tools are used together, the impact is greater than either could achieve alone. For example, assume that HOME funds are used to support homeownership in a given neighborhood. HOME or CDBG can provide downpayment assistance to help low-income families to finance the purchase of new homes in a targeted neighborhood. However, if the families move into the neighborhood and find that the community lacks community facilities and local retail shops to meet their needs, it might make sense for the jurisdiction to invest its CDBG funds in the non-housing needs of the neighborhood, and its HOME funds in the homeownership program. This way, it can stretch its resources to undertake a broader range of activities to meet the diverse needs of the neighborhood residents. This results in a more vibrant, successful community. It is important for jurisdictions to consider how CDBG and HOME can work together so that they are able to get the greatest return for their programs. Planning for CDBG and HOME There are numerous ways that CDBG and HOME can be combined. Jurisdictions need to evaluate these options and then make decisions about how to effectively use these programs given the needs of their community. The section below provides a brief summary of how jurisdictions can consider these options as a part of their planning processes. For more detail on the key steps in making strategic decisions regarding CDBG and HOME funding, see Chapter 6 of this guidebook. To tackle these complex program decisions, jurisdictions may wish to consider developing: An assessment of community needs; A community-wide plan for addressing needs through an array of different community development projects; and A clearly-defined approach to each individual community development project. Assessment of Community Needs Although many American communities share similar challenges, such as a lack of affordable housing, no two communities are exactly alike. A needs assessment helps each community identify and define its individual needs as well as its strengths and assets. The needs assessment should be conducted by the local or state government and should be the first step in determining how to effectively use resources. Often this assessment is done as a part of the Consolidated Planning process and includes: A description of the assets and resources present in the community (such as a community college or existing infrastructure); Current data and projections concerning demographics (e.g., households, income levels, etc.) as well as housing supply and demand; Data on rents and housing prices in specific neighborhoods within the jurisdiction; An analysis of the health of the local economy; An assessment of the state of the jurisdiction s infrastructure; An analysis of which neighborhoods have the most acute community development needs; and A general review of the feasibility and need for certain types of community development projects (such as infill housing versus multifamily rental housing) in specific neighborhoods. Community-Wide Plan After conducting a community needs assessment, community development staff should develop a plan for tackling the challenges faced by the community. Typically, the plan will involve a number of different community development activities in different neighborhoods within the jurisdiction. The plan strives to coordinate different types of housing, economic development, infrastructure, and related activities to maximize the impact of public funds. States and localities can use the Consolidated Planning process a requirement for direct grantees receiving HOME or CDBG funds as an opportunity to undertake community-wide planning. Note that 3
10 subrecipients and units of general local government who receive funds from a direct HUD grantee do not need to do their own consolidated plan. They are covered by the grantee s plan. This planning process ensures that there is input from nonprofit partners, local businesses, and most importantly, residents that will be affected by community development projects. Wide community participation in the planning process is invaluable because it ensures that community development projects truly reflect what the community wants and needs. When preparing the Consolidated Plan and Annual Action Plan, jurisdictions determine the appropriate level and nature of a variety of housing activities, such as the development of local rental, homebuyer, rehabilitation, special needs, or other types of affordable housing programs to address community needs. The process should also address how HOME and CDBG can be used strategically to address the needs identified for the community. Individual Project Approach With a consolidated plan in hand, jurisdictions are ready to evaluate the feasibility, implementation and benefits of program resources for each individual project. Feasibility Research. Often, communities will need additional research to establish the feasibility of a given project. For housing projects, a market study is a focused assessment of whether a specific housing product, on a specific site, will be able to attract residents with the ability to pay and how quickly. This type of study will explicitly conclude whether the proposed rents or housing prices for the specific project are achievable. For neighborhood revitalization projects, a broader market study that examines both housing and economic data may be necessary to assess the feasibility of a larger, multifaceted initiative. Implementation Planning. As early as possible, community development staff should identify the potential costs and existing concerns related to the implementation of the project. Even an apparently straightforward housing development project can involve a diverse array of costs: administrative expenses, infrastructure modifications, services for residents, basic construction costs, and more. As this model will explain in detail, the availability of HOME and CDBG funds (as well as other sources of financial support) depends on whether the specific use of funds qualifies as an eligible activity under their respective program rules. Strategic use of program funds can maximize the impact of subsidies while meeting the eligibility requirements of all relevant programs. Costs and Benefits of Funding Sources. Subsidies from programs enable communities to undertake projects that may not otherwise be feasible. However, it is important to consider the additional responsibilities and restrictions that come with using these funds for particular projects. Some possible responsibilities and restrictions include, depending on the funding source: Rent limits for subsidized units; Restrictions on the purchase and resale of subsidized homes; Reporting and monitoring responsibilities to ensure ongoing compliance with program rules and regulations; and Rules regarding the targeting of subsidies toward a program s intended beneficiaries. Communities should consider carefully how the requirements of different funding sources will impact a given project. How to Use this Model This model program guide is intended for PJ staff to help communities use their funds strategically. The guide is designed to be a useful crash course in the programs and it highlights the differences that help practitioners invest these resources wisely. Each chapter describes the applicable program rules for each specific type of housing development rental housing, homeownership, and rehabilitation and includes a side-by-side comparison of the key requirements of the programs. This format should assist the community development practitioner in need of specific programmatic information for quick-reference. This guide is organized in the following six chapters: Chapter 1: Basics introduces each program and provides general information on the eligible activities, program restrictions, and administrative requirements for each program. The chapter includes a chart that summarizes the key program requirements to facilitate comparison. 4
11 Chapter 2: Using for Rental Housing describes rental housing requirements and illustrates how can be combined to support the development of affordable rental housing. Chapter 3: Using for Homeownership Programs explores ways to assist homebuyers and considers the most effective ways that communities combine the two programs to develop housing units for purchase. Chapter 4: Using for Homeowner Rehabilitation provides an analysis of using for homeowner rehabilitation. Chapter 5: Using for Comprehensive Neighborhood Revitalization considers the use of funds for targeted community development within a specific neighborhood. Strategic use of along with other resources can allow communities a chance to breathe new life into a deteriorating neighborhood. Chapter 6: Making Strategic Investment Decisions focuses on how communities can make the most of every subsidy dollar. Careful allocation of program funds, effective program design, and program performance review are all part of an effective use of. Under the HOME Program, the recipient of HUD funds is known as a participating jurisdiction or PJ. Under the CDBG program, the recipient is known as a grantee. Throughout this guidebook, the general term jurisdiction will be used to mean the local or state government that receives HOME or CDBG funds. When specifically referring solely to the recipient of HOME funds, PJ will be used and when specifically referring solely to the recipient of CDBG funds, grantee will be used. Under the State CDBG Program, units of general local government that receive CDBG money from a state are sometimes known as state grant recipients. Under this guide they will be called units of general local government. In addition, the guide uses the expression low- and moderate-income or LMI to refer to income-eligible persons or households under both. This is because persons or households who are at or below 80 percent of area median income, as determined and adjusted by HUD on an annual basis, are called LMI under the CDBG program, and lowincome under the HOME Program. When the guide discusses the CDBG or HOME requirements of one of the programs specifically, it uses the terminology of that particular program. About the Model Program Guides : Working Together to Create Affordable Housing is one of a series of model program guides published by the Office of Affordable Housing Programs of the U.S. Department of Housing and Urban Development. The model program guide series provides technical assistance and guidance on HOME Program implementation to participating jurisdictions. Model program guides are available to the public at no cost. For more information about the model program guides, see the Office of Affordable Housing Programs online library at library/modelguides/index.cfm. 5
12 Chapter 1: Basics This chapter is a basic primer for housing practitioners who are new to the HOME or CDBG programs. It provides a general overview of the two programs, including their statutory intents and key program partners. For each program, the chapter describes basic eligible activities and highlights important administrative requirements. The subsequent chapters provide more detail on each of the eligible affordable housing activities. This chapter concludes with a detailed chart that compares the key requirements of the two programs. Part 1: HOME Investment Partnerships (HOME) Program What is HOME? Created by the National Affordable Housing Act of 1990 (NAHA), HOME is the largest Federal block grant available to communities to create affordable housing. The intent of the HOME Program is to: Increase the supply of decent, affordable housing to low- and very low-income households; Expand the capacity of nonprofit housing providers; Strengthen the ability of state and local governments to provide housing; and Leverage private sector participation. Every year, the U.S. Department of Housing and Urban Development (HUD) determines the amount of HOME funds that states and local governments also known as Participating Jurisdictions (PJs) are eligible to receive using a formula designed to reflect relative housing need. After money has been set aside for America s insular areas i and for nationwide HUD technical assistance, the remaining funds are divided between states (40 percent) and units of general local government (60 percent). The HOME Program regulations are found at 24 CFR Part 92. The Final Rule was published on September 16, 1996 and was amended on March 30, 2004 to include ADDI. The HOME regulations may be found on HUD s Office of Affordable Housing Programs website at: lawsandregs/regs/home/index.cfm HOME Program Partners To ensure success in providing affordable housing opportunities, the HOME Program requires PJs to establish new partnerships and maintain existing partnerships. Partners play different roles at different times, depending upon the project or activity being undertaken with HOME funds. Key program partners include: PJs. A PJ is any state, local government, or consortium that has been designated by HUD to administer a HOME program. State governments: States are given broad discretion in administering HOME funds. They may allocate funds to units of local government directly, evaluate and fund projects themselves, or combine the two approaches. States may also fund projects jointly with local PJs. They may use HOME funds anywhere within the state, including within the boundaries of local PJs. Local governments and consortia: Units of general local government, including cities, towns, townships, and parishes, may receive PJ designation or they may be allocated funds by the state. Contiguous units of local government may form a consortium for the purpose of qualifying for a direct allocation of HOME funds. The local government or consortium then administers the funds for eligible HOME uses. Community Housing Development Organizations (CHDOs). A CHDO is a private, nonprofit organization that meets a series of qualifications prescribed in the HOME regulations. Each PJ must use a minimum of 15 percent of its annual allocation for housing that is owned, developed, or sponsored by CHDOs. PJs evaluate 6
13 organizations qualifications and designate them as CHDOs. CHDOs also may be involved in the program as subrecipients, but the use of HOME funds in this capacity is not counted towards the 15 percent set-aside. Subrecipients. A subrecipient is a public agency or nonprofit organization selected by a PJ to administer all or a portion of its HOME program. It may or may not also qualify as a CHDO. A public agency or nonprofit organization that receives HOME funds solely as a developer or owner of housing in not considered a subrecipient. Other important partners in the HOME Program include: Developers, owners and sponsors. Developers, owners, and sponsors of housing developed with HOME funds may be for-profit or nonprofit entities. Developers are the entities responsible for the putting the housing deal together. Owners are the entities that hold title to the property after rehabilitation, construction, or acquisition. Sponsors work with other organizations such as other nonprofits to assist them to develop and own housing. At project completion, they turn over title to the property to the other organization. Private lenders. Most HOME projects leverage or involve other financing, from for-profit lenders or other entities such as foundations or community groups. Third-party contractors. There is a range of other entities that might work on the HOME Program, such as architects, planners, construction managers, real estate agents, or consultants. These third-party contractors are responsible for specific, well-defined tasks that contribute to the PJ s overall affordable housing activity, such as consolidated planning. HOME Program Activities HOME funds can be used to support four general affordable housing activities: Homeowner rehabilitation. HOME funds may be used to assist existing owner-occupants with the repair, rehabilitation, or reconstruction of their homes. Homebuyer activities. PJs may finance the acquisition and/or rehabilitation, or new construction of homes for homebuyers. Rental housing. Affordable rental housing may be acquired and/or rehabilitated, or constructed. Tenant-based rental assistance (TBRA). Financial assistance for rent, security deposits and, under certain conditions, utility deposits may be provided to tenants. Assistance for utility deposits may only be provided in conjunction with a TBRA security deposit or monthly rental assistance program. Eligible Costs Eligible costs under the HOME Program depend on the nature of the program activity. Generally, HOME funds can be used for the following activities: New construction. HOME funds may be used for new construction of both rental and ownership housing. Any project that includes the addition of dwelling units outside the existing walls of a structure is considered new construction. Rehabilitation. This includes the alteration, improvement, or modification of an existing structure. It also includes moving an existing structure to a foundation constructed with HOME funds. Rehabilitation may include adding rooms outside the existing walls of a structure, but adding a housing unit is considered new construction. Reconstruction. This refers to rebuilding a structure on the same lot where housing is standing at the time of project commitment. HOME funds may be used to build a new foundation or repair an existing foundation. Reconstruction also includes replacing a substandard manufactured house with a new manufactured house. During reconstruction, the number of rooms per unit may change, but the number of units may not. Conversion. Conversion of an existing structure from another use to affordable residential housing is usually classified as rehabilitation. If conversion involves additional units beyond the walls of an existing structure, the entire project is new construction. Conversion of a structure to commercial use is not eligible under HOME. Site improvements. Site improvements must be in keeping with improvements to surrounding 7
14 standard projects. They include new, on-site improvements where none are present or the repair of existing infrastructure when it is essential to the development. Building new, off-site utility connections to an adjacent street is also eligible. Otherwise, off-site infrastructure is not eligible as a HOME expense, but may be eligible for match credit. Acquisition of property. Acquisition of existing standard property, or substandard property in need of rehabilitation, is eligible as part of either a homebuyer program or a rental housing project. After acquisition, rental units must meet HOME rental occupancy, affordability, and lease requirements. Acquisition of vacant land. HOME funds may be used for acquisition of vacant land only if construction will begin on a HOME project within 12 months of purchase. Land banking is prohibited. Demolition. Demolition of an existing structure may be funded through HOME only if construction will begin on the HOME project within 12 months. Relocation costs. The Uniform Relocation Assistance and Real Property Acquisition Policies Act of 1970 (known as the Uniform Relocation Act or URA ) and Section 104(d) of the Housing and Community Development Act of 1974, as amended (known as Section 104(d) ) apply to HOME-assisted properties. Both permanent and temporary relocation assistance are eligible costs, for all those relocated, regardless of income. Staff and overhead costs associated with relocation assistance are also eligible. Note that homeownership undertaken with FY04 FY07 American Dream Downpayment Initiative (ADDI) funds is not subject to the URA. Refinancing. HOME funds may be used to refinance existing debt on single family, owneroccupied properties in connection with HOMEfunded rehabilitation. The refinancing must be necessary to reduce the owner s overall housing costs and make the housing more affordable. Refinancing for the purpose of taking out equity is not permitted. HOME may be used to refinance existing debt on multifamily projects being rehabilitated with HOME funds, if refinancing is necessary to permit or continue long-term affordability, and is consistent with PJ-established refinancing guidelines, as outlined in the PJ s consolidated plan. Capitalization of project reserves. HOME funds may be used to fund an operating deficit reserve for rental new construction and rehabilitation projects for the initial rent-up period. The reserve may be used to pay for project operating expenses, scheduled payments to a replacement reserve, and debt service for a period of up to 18 months. Project-related soft costs. These must be reasonable and necessary. Examples of eligible project soft costs include: Finance-related costs; Architectural, engineering, and related professional services; Tenant and homebuyer counseling, provided the recipient of counseling ultimately becomes the tenant or owner of a HOME-assisted unit; Project audit costs; Affirmative marketing and fair housing services to prospective tenants or owners of an assisted project; and PJ staff costs directly related to projects (not including TBRA). Prohibited Activities and Costs HOME funds may not be used to support the following activities and costs: Project reserve accounts. HOME funds may not be used to provide project reserve accounts (except for initial operating deficit reserves) or to pay for operating subsidies. Tenant-based rental assistance for certain purposes. HOME funds may not be used for certain mandated existing Housing Choice Voucher Program (formerly known as Section 8) uses, such as Housing Choice Voucher rent subsidies for troubled HUD-insured projects. Match for other Federal programs. HOME Program funds may not be used as the nonfederal match for other Federal programs except to match McKinney Act funds. 8
15 Development, operations, or modernization of public housing: HOME funds cannot be used alone or in conjunction with HUD-funded public housing program funds (e.g., Public Housing capital programs such as Development, Comprehensive Improvements Assistance Program (CIAP) or Comprehensive Grant Program (CGP)) to acquire, rehabilitate, or construct public housing units. HOME funds cannot be used to operate public housing units under any circumstances. Properties receiving assistance under 24 CFR Part 248 (Prepayment of Low-Income Housing Mortgages). Properties receiving assistance through the Low-Income Housing Preservation and Resident Homeownership Act (LIHPRHA) or the Emergency Low-Income Preservation Act (ELIHPA) are not eligible for HOME assistance except if the HOME assistance is provided to priority purchasers. Note: these programs are no longer funded by HUD. Double-dipping. During the first year after project completion, the PJ may commit additional funds to a project. After the first year, no additional HOME funds may be provided to a HOMEassisted project during the relevant period of affordability, except that: Tenant based rental assistance to families may be renewed. Tenant based rental assistance may be provided to families that will occupy housing previously assisted with HOME funds. A homebuyer may be assisted with HOME funds to acquire a unit that was previously assisted with HOME funds. Acquisition of PJ-owned property. A PJ may not use HOME Program funds to reimburse itself for property in its inventory or property purchased for another purpose. However, in anticipation of a HOME project, a PJ may use HOME funds to: Acquire property; and Reimburse itself for property acquired with other funds, specifically for a HOME project. Project-based rental assistance. HOME funds may not be used for rental assistance if receipt of funds is tied to occupancy in a particular project. Funds from another source, such as Housing Choice Voucher, may be used for this type of project-based assistance in a HOME-assisted unit. Further, HOME funds may be used for other eligible costs, such as rehabilitation, in units receiving project-based assistance from another source for example, Housing Choice Voucher or state-funded project-based assistance. Pay for delinquent taxes, fees, or charges. HOME funds may not be used to pay delinquent taxes, fees, or charges on properties to be assisted with HOME funds. HOME Program Requirements The HOME Program is designed to provide affordable housing to low-income and very low-income families and individuals. Therefore, the program has some key restrictions that are designed to foster HUD s commitment to long-term affordable housing, quality units and reasonable costs. These key restrictions are discussed below. Income Eligibility and Verification Beneficiaries of HOME funds homebuyers, homeowners or tenants must be low-income or very low-income. Low-income is defined as an annual income that does not exceed 80 percent of area median income, as adjusted by household size. Very lowincome is defined as having an annual income that does not exceed 50 percent of area median income, as adjusted by household size. A household s income eligibility is determined based on its annual income. Annual income is the gross amount of income anticipated by all adults in the household during the 12 months following the effective date of the determination. To calculate annual income, the PJ may choose among three definitions of income: Section 8 annual (gross) income. Annual income determinations are based on the Part 5 definition of annual income. Note that this definition is now known as Part 5. 9
16 IRS adjusted gross income. The calculation for adjusted gross income outlined in the Federal income tax IRS Form Census long form annual income. Annual income is defined as annual income used for the Census long form, for the most recent decennial Census. Having the flexibility to choose the definition of income facilitates the combination of HOME with other funds, from sources that use differing definitions of income. The PJ s choice of definition may depend on the other sources of funds in a project. For example: The Community Development Block Grant (CDBG) Program allows the same three definitions of income; therefore, projects with both sources should use the same definition. The Low Income Housing Tax Credit (LIHTC) Program requires the use of the Part 5 definition of income; therefore, projects that use both HOME and LIHTCs can use the Part 5 definition and comply with the requirements of both programs. Subsidy Limits HOME establishes minimum and maximum amounts of HOME funds that may be invested in any project. The minimum amount of HOME funds is $1,000 multiplied by the number of HOME-assisted units in the project. The minimum only relates to the HOME funds, and no to any other funds that might be used for project costs. The minimum HOME investment does not apply to TBRA. The maximum per-unit HOME subsidy limit varies by PJ. HUD determines the maximum amounts, which are based on the PJ s Section 221(d)(3) program limits for the metropolitan area, each year. As above, those limits apply only to HOME funds and not other funds that may be invested in the project. These limits are available from the HUD Field Office, or information can be found online at home/limits/subsidylimits.cfm. The maximum per-unit subsidy limit is: 100 percent of the dollar limits for a Section 221(d)(3) nonprofit sponsor, elevator-type development, indexed for base city high cost areas, and adjusted for the number of bedrooms. For some PJs, the 221(d)(3) limit has already been increased to 210 percent of the base limit. For these PJs, HUD will allow, upon request, an increase in the per-unit subsidy amount on a program-wide basis. However, the absolute maximum subsidy limit that HUD will allow is 240 percent of the base 221(d)(3) limits. Affordability Periods To ensure that HOME investments yield affordable housing over the long term, HOME imposes rent and occupancy requirements over the length of an affordability period. For homebuyer and rental projects, the length of the affordability period depends on the amount of HOME assistance to the project or buyer, and the nature of the activity funded. Table 1-1 provides the affordability periods. Table 1-1: Determining the HOME Period of Affordability HOME Assistance per Unit or Buyer Length of the Affordability Period Less than $15,000 5 years $15,000 - $40, years More than $40, years New construction of rental 20 years housing Refinancing of rental 15 years housing Throughout the affordability period, income-eligible households must occupy the HOME-assisted housing. Rental housing. When units become vacant during the affordability period, subsequent tenants must be income eligible and must be charged the applicable HOME rent. Homebuyer assistance. If a home purchased with HOME assistance is sold during the affordability period, resale or recapture provisions apply to ensure the continued provision of affordable homeownership. Maximum Value HOME investments are for modest housing. Thus, HOME imposes maximum value limits on owner occupied and homebuyer units. The maximum purchase price may not exceed 95 percent of the median purchase price of homes purchased in the area. In the case of a purchase-rehabilitation project, the 10
17 value of the property after rehabilitation may not exceed 95 percent of the area median purchase price for that type of housing. The after-rehabilitation value estimate should be completed prior to investment of HOME funds. There are two options that PJs have for determining the 95 percent of the median purchase price. Most PJs opt to use the FHA Section 203(b) Mortgage Limits. These limits are available online at home/limits/maxprice.cfm. PJs also have the option of conducting a specialized market analysis that meets certain requirements established by HUD. (These can be found in the HOME Final Rule at 24 CFR (a)(2)(iii).) Property Standards HOME-funded properties must meet certain minimum property standards. State and local standards. State and local codes and ordinances apply to any HOME-funded project regardless of whether the project involves acquisition, rehabilitation, or new construction. Model codes. For rehabilitation or new construction projects where there are not state or local building codes, the PJ must use one of three national model codes. ii Housing quality standards. For acquisition-only projects, if there are no state or local codes or standards, the PJ must enforce Housing Choice Voucher Housing Quality Standards (previously Section 8 HQS). Rehabilitation standards. Each PJ must develop written rehabilitation standards to apply to all HOME-funded rehabilitation work. These standards are similar to work specifications, and generally describe the methods and materials to be used when performing rehabilitation activities. HOME Administrative Requirements Administrative and Planning Costs Each PJ may use up to 10 percent of each year s HOME allocation for reasonable administrative and planning costs. In addition, up to 10 percent of program income deposited in a PJ s local HOME account during a program year may be used for administrative and planning costs. PJs, state recipients and subrecipients may incur administrative and planning costs. Eligible administrative and planning costs include expenditures for salaries, wages, and related costs of PJ staff persons responsible for HOME Program administration. In addition to staff salaries and related costs, other planning and administrative costs could include: Goods and services necessary for administration (for example, utilities, office supplies, etc.); Administrative services under third party agreements (for example, legal services); Administering a tenant-based rental assistance (TBRA) program; Providing public information; Fair housing activities; Indirect costs under a cost allocation plan prepared in accordance with applicable Office of Management and Budget (OMB) Circular requirements; Preparation of the Consolidated Plan; and Complying with other Federal requirements. Match The HOME Program requires that PJs contribute an amount equal to no less than 25 percent of the total HOME funds drawn down for project costs as a permanent contribution to affordable housing. PJs incur a match obligation only for project funds, not for 11
18 administrative, operating, or capacity building expenditures. Although the obligation is incurred based on per dollar expended in project, match credit can be invested in any HOME-eligible project, whether the project receives HOME funds or not. Match can be contributed in many different forms, including cash; value of waived taxes or fees; value of donated land or property; donated goods, services, materials or equipment. Commitment and Expenditure Deadlines The HOME Program encourages PJs to expend their affordable housing funds expeditiously by imposing two deadlines. HOME funds for a given program year must be committed to a HOME project within two years of signing the HOME Investment Partnerships Agreement. For the CHDO set-aside funds, PJs must reserve funds for use by CHDOs within that 24-month period. In addition, HOME funds must be expended within five years of receipt of funds. The Integrated Disbursement and Information System (IDIS) tracks each PJ s progress toward meeting these deadlines. Failure to meet these deadlines may result in a return of HOME funds to HUD. Program Income Program income is the income received by a PJ, state recipient, or subrecipient directly generated from the use of HOME funds or matching contributions. Program income must follow all of the HOME rules and must be used before drawing down new HOME funds. Program income includes, but is not limited to: Proceeds from the sale or long-term lease of real property acquired, rehabilitated, or constructed with HOME funds or matching contributions; Income from the use or rental of real property owned by a PJ, state recipient or subrecipient that was acquired, rehabilitated, or constructed with HOME funds or matching contributions, minus the costs incidental to generating that income; Payments of principal and interest on loans made with HOME or matching funds, and proceeds from the sale of loans or obligations secured by loans made with HOME or matching contributions; Interest on program income; and Any other interest or return on the investment of HOME and matching funds. All HOME program income must be used in accordance with the HOME Program rules. Where program income is concerned, there is an important distinction between subrecipients/state recipients and CHDOs. Specifically: Program income received by subrecipients or state recipients, such as rental income, repayment of loans, interest on loans, fees, and payments for services, is considered program income subject to HOME regulations. However, project proceeds received and retained by CHDOs are not considered program income. PJs have the option of permitting project proceeds to be retained by CHDOs or they may require CHDOs to return these proceeds to the PJ. If the project proceeds are returned to the PJ, they are program income. Use of funds must be specified in the CHDO written agreement and limited to either HOME-eligible activities or other housing activities that benefit low-income families. Pre-Award Costs PJs may incur eligible costs prior to the effective date of their annual HOME Investment Partnerships Agreement, subject to certain conditions. Both administrative and project costs may be incurred. Only costs eligible under the HOME Program rules in effect at the time the costs are incurred are included. Expenditures must meet all regulatory requirements, including environmental review regulations. Pre-award project costs may not exceed 25 percent of the current HOME grant without written approval from HUD. PJs may authorize subrecipients and state recipients to incur pre-award costs, but authorization must be in writing. Citizen participation and all other applicable HOME requirements must be met. 12
19 Part 2: Community Development Block Grant (CDBG Program) What is CDBG? Authorized under Title I of the Housing and Community Development Act of 1974 (HCDA), as amended, the Community Development Block Grant (CDBG) is an annual grant to localities and states to assist in the development of viable communities. These viable communities are achieved by providing the following, principally for persons of low- and moderate-income: Decent housing; A suitable living environment; and Expanded economic opportunities. Principally means that, at a minimum, 70 percent of the CDBG funds expended by a state or entitlement grantee should be used to benefit low- and moderateincome people. This 70 percent can be measured over the course of a one-, two- or three-year time period, selected by the grantee. Every year, each city in a metropolitan area with at least 50,000 people, principal cities (designated by OMB) of metropolitan areas, and each county with more than 200,000 in population (excluding metropolitan cities therein) receive CDBG funds. These cities and urban counties are called entitlement grantees they are entitled to CDBG by virtue of their size. Each state also receives a CDBG grant. The CDBG grant amounts are determined by the higher of two formulas: U.S. Census data based on overcrowded housing, population, and poverty; or U.S. Census data based on age of housing, population growth lag, and poverty. Entitlement communities receive the largest portion of CDBG funding (70 percent) and states receive the other 30 percent. Each state receives CDBG to pass along to its smaller towns and rural counties (nonentitlement communities), which usually compete with one another for the funds. Every state has its own procedures for operating the CDBG Program. The CDBG regulations can be found at 24 CFR Part 570. Information about the Entitlement Program and its regulations are found at: communitydevelopment/ programs/entitlement/index.cfm. Under the State CDBG Program, states follow the HCDA as supplemented by the State CDBG regulations, as applicable. In exercising its obligation to review a state s performance under the program, HUD gives maximum feasible deference to the state s interpretation of these statutory and regulatory requirements. HUD will accept the state s interpretations, provided these are not clearly inconsistent with the Act or the regulation. Information about the State CDBG Program and its regulations can be found at the following website: communitydevelopment/ programs/stateadmin/index.cfm. CDBG Program Partners The CDBG Program relies primarily on several key partners to plan and implement eligible program activities. These partners include: CDBG Grantee. In the Entitlement Program, local governments are known as grantees. In the State CDBG Program, the state is the grantee. Unit of General Local Government (UGLG). In the State CDBG program, a unit of general local government is the community funded by the state to undertake CDBG activities. It is always a local government such as a town, county, or village. In the State CDBG Program, these are often referred to as state grant recipients. Subrecipient. A subrecipient is a nonprofit or public entity that assists the grantee to implement and administer all or part of its CDBG Program. Subrecipients are generally public or private nonprofit organizations that assist the grantee to undertake a series of activities, such as administering a home rehabilitation loan pool. Public agencies that are not a part of the grantee s legal government entity can also be subrecipients, such as a water and sewer authority. Community-Based Development Organization (CBDO). CBDOs are organizations that undertake 13
20 CDBG-funded activities as part of a neighborhood revitalization, energy conservation, or community economic development project. CBDOs can be nonprofit or some for-profit organizations, but cannot be government entities. Note that the State CDBG Program has a somewhat more broad definition of the organizations that may qualify to do these activities and it generally calls these organizations nonprofit development organizations working under Section 105(a)(15) of the statute. This guide will generally call these types of organizations CBDOs but states are encouraged to review the Guide to National Objectives and Eligible Activities for State CDBG Programs for additional information. This guide is available on the HUD website at library/stateguide/index.cfm. Contractor. A contractor is an entity paid with CDBG funds in return for a specific service (for example, construction). Contractors must be selected through a competitive procurement process. CDBG Program Activities There is a wide range of more than twenty activities that are eligible under the CDBG Program. Grantees are free to select those activities that best meet the needs of their communities. However, in order to ensure that the primary objective of the CDBG Program is met the benefit to low- and moderateincome persons grantees must ensure that all activities meet a national objective. It is important for grantees to remember that activities must meet this two-prong test activities must be both eligible and meet a national objective. Described below are the types of eligible and ineligible CDBG activities. These activities have been very loosely grouped into general categories since this guidebook focuses specifically on eligible and ineligible housing-related activities. Eligible CDBG Activities This section lists basic eligible activities under the CDBG Program. Generally, CDBG funds can be used for the following types of activities: Activities related to housing, including but not limited to: Homeownership assistance; Rental rehabilitation activities; Homeowner rehabilitation activities; Housing services in connection with the HOME Program; and Lead-based paint testing and abatement. Other real property activities such as: Acquisition; Disposition; Clearance and demolition; Code enforcement; and Historic preservation. Public facilities, including infrastructure, special needs facilities, or community facilities. Activities related to economic development, including microenterprise assistance, commercial rehabilitation, and special economic development activities. Activities related to public services, including but not limited to: Job training and employment services; Health care and substance abuse services; Child care; Crime prevention; and Fair housing counseling. Assistance to CBDOs CDBG grantees may provide grants or loans to CBDOs to carry out CDBG-assisted activities as part of the following types of projects: Neighborhood revitalization; Community economic development; and Energy conservation. Other Types of Activities Certain other types of activities are also eligible under CDBG, including: Payment of non-federal share of Federal grantin-aid programs for activities that are CDBGeligible activities; Relocation assistance; 14