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Duty to Serve Program


Federal law requires the Federal Housing Finance Agency (FHFA) to issue a regulation to implement the Duty to Serve requirements specified in the Federal Housing Enterprises Financial Safety and Soundness Act of 1992, as amended by the Housing and Economic Recovery Act of 2008. The statute requires Fannie Mae and Freddie Mac (Enterprises) to provide leadership to facilitate a secondary market for mortgages on housing for very low-, low-, and moderate-income families in three specified underserved markets:

  • Manufactured housing
  • Affordable housing preservation
  • Rural housing

Final Evaluation Guidance for Duty to Serve Program

FHFA published the final Evaluation Guidance for the Duty to Serve Program on November 29, 2017. The Proposed Evaluation Guidance was posted for public input from January 13, 2017 to June 7, 2017 and the comments received were considered in developing the final Evaluation Guidance.

FHFA’s Evaluation Guidance communicates FHFA’s expectations regarding the process for developing Fannie Mae’s and Freddie Mac's Underserved Markets Plans and the standard for FHFA to issue a “Non-Objection” to the proposed Plans. The Evaluation Guidance also sets forth the process and standards by which FHFA will evaluate, and report annually to Congress, the Enterprises’ performance and achievements under their Plans.

Timeline »

Click to view the Duty to Serve Program timeline.


Data and Tools »

Click to access datasets on rural areas, Indian tribe areas, high opportunity areas, and areas of concentrated poverty. Below is one of our interactive maps for the high-needs rural regions, which is also featured on our Data and Tools page along with our other data tools.

2018 High-Needs Counties Interactive MapHPI Summary Tables Thumbnail


Duty to Serve Overview Video (2-22-2017) 
Potential Manufactured Home Chattel Loans Pilots (1-18-2017)
Proposed Evaluation Guidance (1-13-2017)
Final Rule (12-29-2016)
Duty to Serve Program Fact Sheet (12-13-2016)
Superseded Fannie Mae Proposed Underserved Markets Plan (5-8-2017) 
Superseded Freddie Mac Proposed Underserved Markets Plan (5-8-2017
Proposed Rule (12-18-2015)
Proposed Rule Fact Sheet (12-15-2015)


Event Materials

Listening Session Overview Slides (2-9-2017)
Listening Session Transcript – Webinar (2-9-2017)
Listening Session Transcript – FHFA Headquarters (2-8-2017)
Listening Session Transcript – Federal Reserve Bank of San Francisco (2-1-2017)
Listening Session Transcript – Federal Reserve Bank of Chicago (1-25-2017)
Stakeholder Webinar Recording (12-19-2016)
Stakeholder Webinar Transcript (12-19-2016)
Stakeholder Webinar Slides (12-19-2016) 



Final Duty to Serve Underserved Markets Plans

FHFA has published Fannie Mae’s and Freddie Mac’s final Underserved Markets Plans (Plans) below, which describe specific activities each Enterprise will undertake from 2018-2020 to fulfill their Duty to Serve obligations in each underserved market. The Enterprises submitted proposed Plans for public comment on May 8, 2017. FHFA and the Enterprises engaged in extensive stakeholder outreach to gather input, and updated the Plans after considering comments received.

FHFA issued Non-Objections to the Plans, as set forth in FHFA’s Evaluation Guidance. The Non-Objections do not constitute FHFA approval for the Enterprises to undertake any of the specific activities or objectives included in the Plans. Implementation of the activities and objectives in the Plans is subject to FHFA review for compliance with the Enterprises’ Charter Acts, specific FHFA approval requirements, safety and soundness standards and market or economic conditions, as applicable. Fannie Mae and Freddie Mac may begin actions to receive Duty to Serve credit under their Plans on January 1, 2018.

Fannie Mae Final Underserved Markets Plan (12-18-2017)
Freddie Mac Final Underserved Markets Plan (12-18-2017)
FHFA’s Final Underserved Markets Plans News Release (12-18-2017)

Submit / View Public Input



About Us

Matt Douglas
Duty to Serve Assistant Program Manager

Jim Gray
Duty to Serve Program Manager

Leah P. Kehoe
Duty to Serve Policy Development Specialist

Mary Owens
Duty to Serve Affordable Multifamily Specialist

Shiv Rawal
Duty to Serve Affordable Rural Specialist

Geenae R. Rivera Soto
Duty to Serve Affordable Single-Family Specialist

Meet the Experts

© 2018 Federal Housing Finance Agency