HUD's FY99 Budget
Congressional Justifications
Government National Mortgage Association

Guarantees of Mortgage-Backed Securities

PROGRAM HIGHLIGHTS

SUMMARY OF BUDGET ESTIMATES 1. SUMMARY OF BUDGET REQUEST The Budget proposes a limitation on new commitments for single-class mortgage-backed securities (MBS) of $150 billion for fiscal year 1999. This request is based on FHA and VA estimates of mortgage insurance and guarantee activity. In fiscal year 1998, it is expected that $30 billion of Multiclass securities will be guaranteed. Since all Ginnie Mae guaranteed Multiclass securities will be based on and backed by mortgage-backed securities issued pursuant to commitment authority, separate commitment authority will not be required for the Multiclass securities. In addition, an appropriation of $9.4 million is proposed to fund administrative expenses. 2. CHANGES FROM 1997 ESTIMATES INCLUDED IN 1998 BUDGET Ginnie Mae issued $98.9 billion of commitments in fiscal year 1997. Guarantees issued were $97.6 billion in fiscal year 1997, representing a decrease of $3.9 billion below the $101.5 billion of guarantees issued for fiscal year 1996. During fiscal year 1997, Ginnie Mae experienced issuer defaults forcing it to assume the issuers' responsibilities. The total servicing portfolios have a balance of $827 million as of September 30, 1997. The additions to the portfolio will more than offset the reduction resulting from the sale of servicing rights on the multifamily and single family portfolios, normal amortization, and other terminations of the outstanding loans. In fiscal year 1997, Ginnie Mae's single family servicing portfolio experienced defaults totaling $351 million. Additional single family defaults of $5 billion are anticipated for fiscal years 1998 through 2003. Future losses on the single-family portfolio are expected to reach $196 million for fiscal years 1998 through 2003. In the multifamily program, Ginnie Mae sold servicing rights of $261 thousand on projects outstanding in fiscal year 1997. The net effect of these transactions (less projects submitted to FHA) decreased the end-of-year portfolio from $38 million at September 30, 1996, to a $0 balance by September 30, 1997. There were no multifamily defaults in fiscal year 1997. Defaults of $413 million are anticipated through 2003. Ginnie Mae will be fully indemnified by FHA on multifamily foreclosures except for administrative, assignment, and extraordinary costs. Losses from the multifamily portfolio are expected to reach $56.7 million for fiscal years 1998 through 2003. Ginnie Mae's manufactured housing servicing portfolio had no defaults in 1997. The end-of-year portfolio balance is $220 million. Losses from the mobile home portfolio are expected to reach over $200 million for fiscal years 1998 through 2003. Ginnie Mae has also placed a moratorium on new issuers coming into the manufactured housing underlying program until the program can be properly evaluated and restructured. Ginnie Mae's strategy with respect to the management of acquired servicing is to stabilize and ultimately sell the portfolio at market value. When Ginnie Mae defaults an issuer, it assumes the issuer�s status and assigns subservicing of the acquired portfolio to a contract subservicer. With the assistance of the subservicers, Ginnie Mae manages the individual pools by improving collections on delinquent loans, filing claims with FHA and VA on defaulted mortgages, foreclosed properties, and modifying loans in manufactured housing pools. Where possible, the pools are then packaged for sale of the servicing rights of the portfolio. 3. CHANGES FROM 1998 BUDGET ESTIMATES FISCAL YEAR 1998 ESTIMATES EXPLANATION OF INCREASES AND DECREASES The fiscal year 1998 current estimates for multiclass guarantees issued increased by $12.6 billion. It is attributable to improvements in the current program and the addition of new products. Default expenses in fiscal year 1998 current estimate decreased from projected amount in fiscal year 1999 Budget estimate due to projections of sale of servicing rights in the single family portfolio. There are no defaults projected for the multifamily program in 1998. The decrease in net receipts in fiscal year 1998 current estimate is attributable to Ginnie Mae transfer of $382 million to its Reserve Receipt Account. Effective October 1, 1997, Ginnie Mae will transfer net receipts not obligated to cover expenses to its reserve receipt account at the end of each fiscal year. PROGRAM DESCRIPTION This program facilitates the financing of residential mortgage loans insured or guaranteed by the Federal Housing Administration,(FHA), the Department of Veterans Affairs (VA) and the Rural Housing Service. Funds are provided through investments in long-term securities guaranteed by Ginnie Mae which are backed by pools of such mortgages. The investment proceeds are used in turn to finance additional mortgage loans. Institutions which originate and service mortgages (such as mortgage companies, commercial banks, savings banks, and savings and loan associations) assemble pools of mortgages and issue securities backed by the pools. Investors in Ginnie Mae securities include mortgage investors, pension and retirement funds, life insurance companies and individuals. Ginnie Mae currently guarantees modified "pass-through" type securities. Modified pass-through securities provide payment to registered holders of interest plus the monthly installments of principal due on the pooled mortgages, whether or not collected, plus any additional principal collections. Separate pass-through programs have been developed to finance single family homes, multifamily projects and manufactured housing. Ginnie Mae first issues a "commitment" to the prospective securities issuer indicating that the firm meets Ginnie Mae�s eligibility requirements. After Ginnie Mae issues the commitment, the issuer can begin to assemble mortgage pools and issue securities. Securities are issued with minimum face amounts of $25,000 and increments of $5,000 thereafter which have the same aggregate face amount as the aggregate unpaid balance of the pooled mortgages and bear interest at the rate borne by the mortgages--less the amount of issuer servicing fees and Ginnie Mae guarantee fees. Ginnie Mae's credit risk in this program is limited by mortgage insurance provided by Government agencies with respect to all pooled loans. Ginnie Mae's Multiclass securities program guarantees Real Estate Mortgage Investment Conduit (REMIC) and Ginnie Mae Platinum securities. A REMIC security is backed by a pool or trust composed of mortgages or mortgage-backed securities (MBS). The REMIC issuer issues certificates of interest to investors and elects to be taxed under the REMIC provisions of Federal tax law (Sections 860A through 860G of the Internal Revenue Code of 1986). REMICs are multiple class securities with different maturities, typically between 2 and 20 years, or with payments based on fractions of the MBS income stream. This multiple class characteristic is what largely distinguishes REMICs from single class Mortgage-Backed Securities of the kind that Ginnie Mae has been guaranteeing since 1970. The Ginnie Mae Platinum security consolidates Ginnie Mae MBS pools with the same interest rate into larger pools which are sold to investors by securities dealers. Ginnie Mae, under its Multiclass securities program, will guarantee only securities based on and backed by mortgage-backed securities guaranteed by Ginnie Mae. Since all Ginnie Mae guaranteed Multiclass securities will be based on and backed by MBS issued pursuant to previously issued commitment authority, additional commitment authority will not be required for the Multiclass securities. Ginnie Mae started the Targeted Lending Initiative on October 1, 1996. The targeted lending initiative was developed by Ginnie Mae in support of its statutory purpose and the national homeownership strategy announced by the President and the Secretary. It is consistent with Ginnie Mae's statutory purpose to promote access to mortgage credit in the central cities by increasing the liquidity of mortgage investments and improving the distribution of investment capital available for residential mortgage financing. Through the Targeted Lending Initiatives, Ginnie Mae reduces the guarantee fees it charges lenders by up to 50 percent for making mortgage loans in any of the Nation�s 72 Empowerment Zones or Enterprise Communities and adjacent eligible central city areas. The incentive to lenders is expected to increase central city lending by $5 billion by the year 2000. PROGRAM ACTIVITY 1. Status of Program. During fiscal year 1997, the Ginnie Mae guaranteed securities totalled $97.6 billion. Additional guarantees of mortgage-backed securities are estimated at $107.5 billion in fiscal year 1998 and $108.7 billion in fiscal year 1999. The changes in the outstanding principal balance of securities for fiscal years 1997, 1998, and 1999 are shown in the following table: The Multiclass Program began in 1995. Estimated program activity, which involves a Ginnie Mae-guarantee on the Multiclass securities that are backed by already Ginnie Mae-guaranteed securities, is shown in the following table: 2. Financing. Application and guarantee fees and other charges are paid by issuers of guaranteed securities to cover Ginnie Mae's issuing and claims costs under the guarantees and to provide additional amounts to reduce the deficit. The Association may borrow from the Treasury in order to meet obligations. However, it has not had to use that authority. Expenses reflect cost of operations including a write-down of assets held in inventory (real estate-owned properties, manufactured housing units, mortgages, and claims receivable) to the lower of cost or market value. During fiscal year 1997, $1.6 million was written-down. The following table reflects the composition of program net income: Sale of Servicing Rights Sales proceeds of servicing rights in fiscal year 1997 was $261 thousand for multifamily. At the time of sale, a 10 percent down payment is made and the balance is paid based on the settlement date of the contract. In fiscal year 1997, no revenue was realized over expenses. Sale of servicing rights in fiscal years 1998 and 1999 is estimated to be $258 thousand and $256 thousand, respectively. Fiscal Year 1999 Performance Indicators Ginnie Mae expects to achieve the following objectives in 1999: Help lower mortgage interest rates for home buyers using Federal Government Housing credit: Indicator: Maintain and/or increase liquidity of funds available for FHA- and VA-backed mortgages, thereby lowering mortgage rates for home buyers using Federal credit. Benchmark: Maintain or increase percentage of FHA, VA and Rural Housing Service securitization; introduce new products and/or innovations, implement efficiencies that result in cost savings. Indicator: Maintain 95 percent rate of securitizing FHA and VA single-family mortgages securitized annually. Indicator: Increase and maintain percentage of multifamily mortgages by 10 percent from fiscal year 1997 to fiscal year 1998. Ginnie Mae currently guarantees securities for about 40 percent of FHA's annual multifamily business. Indicator: Increase revenue from multiclass security credit enhancement. Benchmark: Increase volume to the multiclass security program by 10 percent. Indicator: Increase by 10 percent the number of lenders in underserved communities by conducting training seminars for potential new users, etc. Enable the Ginnie Mae Mortgage-Backed Securities Program to be self-supporting. Indicator: Maintain adequate reserve fund based on estimates derived from Ginnie Mae's Policy and Financial Analysis Model. FEDERAL CREDIT REFORM The Omnibus Budget Reconciliation Act (OBRA--P.L. 101-508) required Federal credit programs to implement credit reform beginning in fiscal year 1992. This year's Budget presentation for Ginnie Mae has been structured with four accounts to comply with the requirements of OBRA. In fiscal year 1999, the Financing Account will outlay $9.4 million from its net receipts to a Receipt Account from which $9.4 million will be appropriated for administrative expenses into the Program Account and the Financing Account will outlay $286 million from its net receipts to the Reserve Receipt Account. The Financing Account is treated as a Non-Budgetary Account. Budget authority and outlay data, for each of the new accounts, is presented in the following table.