Congressional Research Servicehttps://crsreports.congress.govR48073
Congressional Research Service
An Overview
R48073May 20, 2024 Joseph V. Jaroscak, Coordinator Analyst in Economic Development Policy Katie Jones Analyst in Housing Policy Libby Perl Specialist in Housing Policy Overview
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1 2 1For descriptions of programs administered by HUD, see U.S. Department of Housing and Urban Development, Programs of HUD: Major Mortgage, Grant, Assistance, and Regulatory Programs, 2023, https://www.hud.gov/sites/dfiles/Main/documents/HUDPrograms2023.pdf. For an overview of federal housing assistance programs more generally, including those administered by HUD and other departments, see CRS Report RL34591, Overview of Federal Housing Assistance Programs and Policy. 2For grantee Consolidated Plans and associated documents, see HUD, CPD Consolidated Plans, Annual Action Plans, and CAPERs, https://cpd.hud.gov/cpd-public/consolidated-plans.
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Where to Find Information on Each of the over 1,200 state and local government grantees that receive funding through at least one covered HUD formula grant program submits a Consolidated Plan.3 Consolidated Plans can be found website at https://cpd.hud.gov/cpd-public/consolidated-plans. Grantee contact information is available at https://www.hudexchange.info/grantees/contacts/. Those interested in providing input on Consolidated Plan should look for information on citizen participation meetings from the grantee during the planning process. 4 1. 2. 3. 4. 5. 5 3The largest of these programs, the Community Development Block Grant, provides funds to more than 1,200 grantees. HUD, 2025 Congressional Justifications, p. 18-1, https://www.hud.gov/sites/dfiles/CFO/documents/2025_CJ_Program_-_CDF.pdf. 4For the amounts of recent https://www.hud.gov/program_offices/comm_planning/budget. Not all grantees receive funds through all five programs. 524 C.F.R. §§91.2(b) and 91.510. For example, local public housing authorities (PHAs) are required to submit PHA plans as a condition of receiving public housing and Section 8 funding, and the PHA plan must include a certification that its annual plan is consistent with the Consolidated Plan for the jurisdiction where the PHA is located (see 24 C.F.R. §903.15).
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1. 62.3. 7 8 6CDBG grantees are required to ensure that 70% of its program funds principally benefit low- and moderate-income persons in a one-, two-, or three-year period, although waivers may be obtained in extenuating circumstances. For https://www.hudexchange.info/programs/cdbg/cdbg-low-moderate-income-data/. 742 U.S.C. §§5301 et seq., as interpreted by HUD at 24 C.F.R. §570.200 and the HUD Guide to National Objectives and Eligible Activities for CDBG Entitlement Communities, https://www.hudexchange.info/resource/89/community-development-block-grant-program-cdbg-guide-to-national-objectives-and-eligible-activities-for-entitlement-communities/. 8For CDBG and the other four HUD programs discussed in the report, the U.S. territories are American Samoa, Guam, the Northern Mariana Islands, and the U.S. Virgin Islands. Under these programs, Puerto Rico is treated as a state.
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910 11 12 13 9The Housing Trust Fund is funded through required annual contributions from two government-sponsored enterprises, Fannie Mae and Freddie Mac, rather than through appropriations. See 12 U.S.C. §4567. 10By law, up to 10% of funds can be used for certain homeownership activities. HUD regulations limit the use of funds for operating costs to no more than one- 1142 U.S.C. §11373(b). 1242 U.S.C. §12904. 1342 U.S.C. §12903(c).
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14 15 16 17 This new consolidated submission will replace the current CHAS, the HOME program description, the Community Development plan and the CDBG final statement, and the ESG and HOPWA applications. The rule also consolidates the reporting requirements for these 1442 U.S.C. §12903(f). 15For more discussion about the history and the evolution of planning requirements for HUD formula grant programs, see Margery Austin Turner, G. Thomas Kingsley, Monte L. Franke, et al., Planning to Meet Local Housing Needs: The Role of HUD Consolidated Planning Requirements in the 1990s, The Urban Institute Metropolitan Housing and Communities Policy Center, Submitted to HUD, Final Report, Washington, DC, December 2002, https://www.huduser.gov/portal//Publications/pdf/local_housing_needs.pdf. 1642 U.S.C. §12705. 17Department of Housing and Urban Development, Consolidated Submission for Community Planning and Development Programs, 60 Federal Register 1878-1919, January 5, 1995, https://www.govinfo.gov/content/pkg/FR-1995-01-05/pdf/94-32150.pdf. (The Federal Register notice is erroneously dated January 5, 1994, but was actually published on January 5, 1995. A correction to the date is at 60 Federal Register 2813, https://www.govinfo.gov/content/pkg/FR-1995-01-11/pdf/X95-30111.pdf.) Overview
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programs, replacing five general performance reports with one performance report. Thus, in total, the consolidated plan and consolidated report will replace 12 documents.18 19 2021 2223 24 1860 Federal Register 1878. 19https://www.huduser.gov/portal/datasets/cp.html. 20The Housing Trust Fund was established by the Housing and Economic Recovery Act of 2008 (P.L. 110-289). The requirement that states submit an allocation plan is at 12 U.S.C. §4568(c)(5). 21 Federal Register 66981, October 29, 2010, https://www.govinfo.gov/content/pkg/FR-2010-10-29/pdf/2010-27069.pdf; and Department of Housing and Urban Development, Federal Register 5200-5244, January 30, 2015, https://www.govinfo.gov/content/pkg/FR-2015-01-30/pdf/2015-01642.pdf. 22HUD, The eCon Planning Suite: A Desk Guide for Using IDIS to Prepare the Consolidated Plan, Annual Action Plan, and CAPER/PER, August 27, 2013, p. 24, https://www.hud.gov/sites/documents/20394_CONPLAN_MANUAL.PDF. 23For the purposes of the HOME program, one or more units of general local government that do not qualify for direct allocations of HOME funds on their own may form a consortium for the purposes of qualifying for HOME funds, subject to certain requirements. The consortium members must be geographically contiguous to one another. See 24 C.F.R. §92.101. 24HUD, The eCon Planning Suite: A Desk Guide for Using IDIS to Prepare the Consolidated Plan, Annual Action (continued...) Overview
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Figure 1. HUD Consolidated Planning Process Visualization of Action Items Source: Development, https://www.hud.gov/sites/documents/20394_CONPLAN_MANUAL.PDF). Notes: As indicated in HUD guidance, these steps may occur simultaneously and at various points in the year. 1. 2. 3. 4. 252627 Plan, and CAPER/PER, August 27, 2013, p. 24, https://www.hud.gov/sites/documents/20394_CONPLAN_MANUAL.PDF. 2524 C.F.R. §91.15(b). 2624 C.F.R. §91.15(b)(1). 2724 C.F.R. §91.520.
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Figure 2. Consolidated Plan Process Documentation Components Source: Congressional Research Service Graphic based on HUD guidance materials. 28 293031 2824 C.F.R. §91.505. 2924 C.F.R. §§91.100, 91.105, 91.110, 91.115, and 91.401. 30HUD, The eCon Planning Suite: A Desk Guide for Using IDIS to Prepare the Consolidated Plan, Annual Action Plan, and CAPER/PER, August 27, 2013, pp. 24-25, https://www.hud.gov/sites/documents/20394_CONPLAN_MANUAL.PDF. 31HUD, The eCon Planning Suite: Citizen Participation and Consultation Toolkit, July 2014, p. 3, https://www.hudexchange.info/sites/onecpd/assets/File/eCon-Planning-Suite-Citizen-Participation-Toolkit.pdf.
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3233 34 35 36 32HUD, Consolidated Plan Data Quick Guide, April 2023, p. 3, https://files.hudexchange.info/resources/documents/CDBG-Consolidated-Plan-Data-Quick-Guide.pdf. 33For example, see HUD Exchange, eCon Planning Suite Citizen Participation and Consultation Toolkit, https://www.hudexchange.info/programs/consolidated-plan/econ-planning-suite-citizen-participation-and-consultation-toolkit/. 3424 C.F.R. §91.100(a)(1). 3524 C.F.R. §91.100(a)(2). 3624 C.F.R. §91.100(a)(3).
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373839 4041 42 4344 45 3724 C.F.R. §91.100(a)(4). Under the Consolidated Plan regulations, CDBG entitlement cities are also required to submit such plans to the county. 3824 C.F.R. §91.100(a)(5). 3924 C.F.R. §91.100(c). 4024 C.F.R. §91.100(b). 4124 C.F.R. §91.100(d). 4224 C.F.R. §91.110(a). 4324 C.F.R. §91.110(b). 4424 C.F.R. §91.110(c). 4524 C.F.R. §§91.110(d)-(e).
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46 47 48 49 50 51 46For local governments, see 24 C.F.R. §91.105; for states, see 24 C.F.R. §91.115; and for HOME consortia, see 24 C.F.R. §91.401. 47HUD, The eCon Planning Suite: Citizen Participation and Consultation Toolkit, 2014, p. 6, https://www.hudexchange.info/sites/onecpd/assets/File/eCon-Planning-Suite-Citizen-Participation-Toolkit.pdf. 48See 24 C.F.R. §§91.105(a)(2), 91.115(a), and 24 C.F.R. §91.401. 49CDBG grantees are required to respond within 15 working days, when practicable. 50For applicable requirements, see 24 C.F.R. §§8 and 35-36. 5124 C.F.R. §91.401.
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5253 54 55 52For local governments, see 24 C.F.R. §91.205, and for states, see 24 C.F.R. §91.305. 5324 C.F.R. §91.405. 54Rapid rehousing is short- to medium-term rental assistance typically not in excess of 24 months. 55HMIS and PIT count data are collected by states and communities and submitted to HUD for inclusion in Annual Homeless Assessment Reports. For more information, see https://www.hudexchange.info/homelessness-assistance/ahar/#2023-reports.
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56 57 58 56- 5724 C.F.R. §91.410. 58For CRS assistance on issues related to natural hazards, see CRS Report R46438, Natural Disasters and Hazards: CRS Experts, coordinated by Lauren R. Stienstra and Peter Folger.
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59 59For strategic plan requirements that apply to local government grantees, see 24 C.F.R. §91.215; for state grantees, see 24 C.F.R. §91.315; and for consortia, see 24 C.F.R. §91.415.
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60 60See 24 C.F.R. §§570.208(d)(5) and 570.483(e)(5).
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6162 61HUD, Using IDIS to Prepare the Consolidated Plan, Annual Action Plan, and CAPER/PER, June 2021, p. 51, https://www.hud.gov/sites/dfiles/CPD/documents/Non-State-Certifications.pdf. 62For local government action plan requirements, see 24 C.F.R. §91.220; for state requirements, see 24 C.F.R. §91.320; and for consortia, see 24 C.F.R. §91.420.
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63 64 65 66 63For information on the Standard Form 424, see HUD, HUD Form SF-424, 2022, https://www.hudexchange.info/resource/306/hud-form-sf424/. 64The regulatory definitions for affordable rental housing and affordable homeownership can be found at 24 C.F.R. §§92.252 and 92.254, respectively. 65their status. 66For local government program-specific annual action plan requirements, see 24 C.F.R. §91.220(l); for state government requirements, see 24 C.F.R. §91.320(k); for consortia requirements, see 24 C.F.R. §91.425.
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67 686970 7172 73 67See 24 C.F.R. §91.225(a) for local governments and 24 C.F.R. §91.325(a) for state governments. 6842 U.S.C. §3608(e)(5). 69For more information, see CRS Report R44557, The Fair Housing Act: HUD Oversight, Programs, and Activities. 70U.S. Department of Housing and Urban Development, Affirmatively Furthering Fair Housing, 88 Federal Register 8516, February 9, 2023, https://www.federalregister.gov/documents/2023/02/09/2023-00625/affirmatively-furthering-fair-housing. 71For CDBG, see 24 C.F.R. §570.606 and for HOME, see 24 C.F.R. §92.353. 7224 C.F.R. §42.325. More information is also available at U.S. Department of Housing and Urban Development, HUD Handbook 1378.0, Tenant Assistance, Relocation and Real Property Acquisition Handbook, https://www.hud.gov/program_offices/administration/hudclips/handbooks/cpd/13780. 73Anti-lobbying regulations are at 24 C.F.R. §§87.100 et seq.
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7475 76 7778 79 80 81 7424 C.F.R. §91.225(a)(5). 7549 C.F.R. §§24.1 et seq. 7612 U.S.C. §1701u and 24 C.F.R. §75.3. The law also applies to Public and Indian Housing Authorities. 7724 C.F.R. §§91.225(b) and 91.325(b). 78Pursuant to 24 C.F.R. §91.425, CDBG entitlement communities that are members of consortia are required to submit the applicable certifications for local government grantees outlined in 24 C.F.R. §91.225. 79State CDBG grantees are also required to make certifications regarding consultation with local governments. 80Local jurisdictions are also required to certify adherence to an active HUD-approved Consolidated Plan. 81For more information on CDBG National Objectives, see 24 C.F.R. §570.200.
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82 83 84 85 82Specifically, the certification applies to title VI of the Civil Rights Act of 1964 (42 U.S.C. §2000d), the Fair Housing Act (42 U.S.C. §§3601-3619), and implementing regulations. 83Local governments must also certify compliance with lead-based paint procedures. 8424 C.F.R. §§91.225(d), 91.325(d), and 91.425(a)(2). 8524 C.F.R. §91.325(c) and 24 C.F.R. §91.225(c).
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86 87 8624 C.F.R. §91.325(e) and 24 C.F.R. §91.225(e). 8724 C.F.R. §91.520.
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88 89 90 91 8824 C.F.R. §91.520(i). 8924 C.F.R. §91.500. 90The purposes of the Cranston-Gonzalez National Affordable Housing Act (P.L. 101-625) are helping families save for a down payment, preserving existing assisted housing units, extending and strengthening partnerships for the production of affordable housing, expanding federal rental assistance, and increasing the supply of supportive housing. 42 U.S.C. §12703. 91Required certifications for local governments are at 24 C.F.R. §91.225, for states at 24 C.F.R. §91.325, and for consortia at 24 C.F.R. §91.425.
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92 92 Consolidated Planning Process to Narrow the Digital Divide and Increase Resilience to Federal Register 90997-91012, December 16, 2016.
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93 94 9596 97 9899 93y Statement Submitted by Mrs. Lowey, Chairwoman of the House Committee on Appropriations Regarding H.R. 1865Congressional Record, daily edition, vol. 165, (December 17, 2019), p. H11462. 94See 24 C.F.R. §§91.210(e), 91.215(h), 91.220(j), 91.310(d), 91.315(h), and 91.320(i). 95 Federal Register 1746-1786, January 10, 2024. 96Ibid., pp. 1766-1768. 97Ibid., pp. 1766-1767. 98Ibid., pp. 1767-1768. 99Ibid.
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100101102 103 104105 100 See https://www.huduser.gov/portal/datasets/cp.html. 101 https://archives.hud.gov/news/2012/pr12-077.cfm. For more information on the eCon Planning Suite, see https://www.hudexchange.info/programs/consolidated-plan/econ-planning-suite/. 102 The preparation of a Consolidated Plan is currently complex and time-intensive for local governmentsthe federal government must streamline the application process and help with information gatheringCities, 2024 National Municipal Policy and Resolutions, adopted at the 2023 City Summit, November 18, 2023, p. 114, https://www.nlc.org/wp-content/uploads/2024/01/2024-NMP-1.16.2024.pdf. 103 HUD, AI Inventory, https://www.hud.gov/program_offices/cio/AI_Inventory. 104 HUD and EDA, Reducing Administrative Burden Through Aligned Planning, December 2017, https://files.hudexchange.info/resources/documents/HUD-EDA-Reducing-Administrative-Burden-Through-Aligned-Planning.pdf. 105 HUD and EDA, Memorandum of Understanding Between the United States Department of Housing and Urban Development and the Economic Development Administration, Department of Commerce Regarding Integrated Community and Economic Development Planning, 2016, https://www.hud.gov/sites/documents/HUD_EDAPLANMOU_EDA.PDF.
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106 U.S. Government Accountability Office, Economic Development: Opportunities Exist for Further Collaboration among EDA, HUD, and USDA, GAO-21-579, July 2021, pp. 31-32, https://www.gao.gov/assets/d21579.pdf.
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Appendix. 107 Joseph V. Jaroscak, Coordinator Analyst in Economic Development Policy Libby Perl Specialist in Housing Policy Katie Jones Analyst in Housing Policy 107 For more information, see https://www.hudexchange.info/programs/consolidated-plan/econ-planning-suite/.
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