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by Eric Belsky
Managing Director |
Credit is the lifeblood of housing. Without credit, housing does not get built
and home buying is possible only for those with enough cash to cover the full
costs. We live in a society in which many homebuyers lack the ability to come up
with large downpayments. Thus, the
availability of low downpayment loans for first-time buyers is critical to
recovery of the for-sale market, especially now that so many homeowners are underwater on their mortgages
and unlikely to sell until doing so does not force them to suffer a loss. This is one of the main reasons that the
Federal Housing Administration (FHA)—an agency launched in 1934 to get credit
flowing to housing during the Great Depression—has been so essential to this
housing recovery.
Apart from FHA, access to low downpayment loans all but
evaporated for home purchase loans in the wake of the Great Recession and
remained tight in 2012. FHA estimates that in the first quarter of 2009 it
supplied 89 percent of purchase loans with downpayments of 5 percent or
less. Even in the first quarter of 2012, it commanded an 83 percent share. And
FHA supplied more than half of purchase loans with downpayments of 10 percent
or less in the first quarter of 2012.
Indeed, FHA has played an outsized role in the home purchase
market, largely as a result of its willingness to take on low downpayment loans
and at lower credit scores than Fannie Mae, Freddie Mac, or conventional lenders without
FHA insurance. While FHA scaled up both its refinance and its home purchase
loan endorsements to fill the void left by the exit of lenders willing to lend
without a government guarantee after the housing bubble burst, FHA supplied just
13 percent of refinance loans originated in 2010 but nearly half (48 percent to
be more precise) of home purchase loans (net of manufactured homes).
As important as FHA has been for home purchasers more generally,
it has been especially so for low-income home purchasers, minority home
purchasers, and those buying in low-income or predominantly minority census
tracts. For example, in 2010 government
backed loans (which are mostly FHA) accounted for roughly two thirds of home
purchase loans in low-income and mostly minority neighborhoods. But home purchasers outside of low income and
mostly minority tracts relied on FHA as well, though to a lesser degree (click chart to enlarge).
Notes: Federally backed loans include FHA/VA and USDA
Rural Housing loans. Loans include owner-occupied purchase loans and exclude
manufactured housing. Low-/moderate-/high-income neighborhoods are census
tracts with a median family income less than 80%/80-120%/more than 120% of area
median. Minority/mixed/white neighborhoods are census tracts with a minority
share of more than 50%/10-50%/less than 10%. Source: JCHS tabulations of 2010 Home Mortgage
Disclosure Act data.
And it is not just FHA’s role in allowing a recovery in home
sales that has elevated its importance since it was called upon to play the
historic mission it was created to serve.
Unlike single-family building which has only started to revive in
earnest, multifamily construction increased by 54 percent in 2011 and is on
track to increase by another 40 percent in 2012. In the 12-month period
coinciding with the 2011 fiscal year in which FHA endorsed loans for the
construction of about 30,000 units in multifamily (5+ unit) buildings, construction
was started on 143,000 such multifamily units. That same fiscal year, FHA
endorsed loans for the purchase or refinance of another 146,000 multifamily
apartments, providing needed liquidity to the market.
Why is recognizing FHA’s crucial role in supporting a
housing market recovery so critical? For
one, the recovery is still in its early innings and private capital will likely
take time to do more low downpayment and lower credit score lending. For
another, FHA has fallen below a 2 percent capital reserve requirement against
insurance-in-force. This means it is under pressure to tighten underwriting standards
to bring up its capital levels. So far, FHA has not required any cash infusions,
in contrast to several private mortgage insurance companies that have failed,
banks that have needed bailouts, and Fannie Mae and Freddie Mac that have had
to draw on Treasury to the tune of about $187.5 billion thus far under the Senior Preferred Stock Purchase Agreements. While
this could change given the inevitable elevated level of claims stemming from
the collapse in home prices, FHA has been able to pay for most claims from premiums
it is taking in. But there are no
guarantees.
To date, FHA has taken many actions to shore up its
financial position, including increasing premiums, lifting the minimum
downpayment necessary from 3.0 to 3.5 percent, placing credit score boundaries
around who can qualify for a 3.5 percent downpayment, and, importantly, increasing
enforcement actions against lenders, tightening lender approval standards, and
reducing seller concessions from 6 percent of home’s sale prices to the greater
of 3 percent of sales price or the appraised value or $6,000. These changes have dramatically increased the
chances that its new business will be on sound footings.
But pressure may build on FHA to do more. If that pressure translates into a more
dramatic reduction in the availability of low downpayment loans, the housing
recovery will almost surely suffer. At the same time, borrowers who present reasonable risks will miss out on what may be a great opportunity to build
wealth through homeownership.