H.R. 5990

[Congressional Bills 119th Congress]
[From the U.S. Government Publishing Office]
[H.R. 5990 Introduced in House (IH)]

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119th CONGRESS
1st Session
H. R. 5990

To require the Secretary of Housing and Urban Development to establish 
a pilot program to provide grants to implementing organizations to 
administer a whole-home repairs program for eligible homeowners and 
eligible landlords, and for other purposes.

_______________________________________________________________________

IN THE HOUSE OF REPRESENTATIVES

November 7, 2025

Ms. Williams of Georgia (for herself and Mr. Downing) introduced the 
following bill; which was referred to the Committee on Financial 
Services

_______________________________________________________________________

A BILL

To require the Secretary of Housing and Urban Development to establish 
a pilot program to provide grants to implementing organizations to 
administer a whole-home repairs program for eligible homeowners and 
eligible landlords, and for other purposes.

Be it enacted by the Senate and House of Representatives of the 
United States of America in Congress assembled,

SECTION 1. SHORT TITLE.

This Act may be cited as the ``Whole-Home Repairs Act of 2025''.

SEC. 2. WHOLE-HOME REPAIRS PILOT PROGRAM.

(a) Definitions.--In this section:
(1) Affordable unit.--The term ``affordable unit'' means a 
unit for which the monthly rental payment is not more than 30 
percent of the gross income of an individual earning at or 
below 80 percent of the area median income, as defined by the 
Secretary.
(2) Assisted unit.--The term ``assisted unit'' means a unit 
that undergoes repair or rehabilitation work through a whole-
home repairs program administered by an implementing 
organization under this section.
(3) Eligible homeowner.--The term ``eligible homeowner'' 
means a homeowner--
(A) with a household income that--
(i) is not more than 80 percent of the area 
median income; or
(ii) meets the income eligibility 
requirements for receiving assistance or 
benefits under a specified program, as defined 
in paragraph (11); and
(B) who is--
(i) an owner of record as evidenced by a 
publicly recorded deed and occupies the home on 
which repairs are to be conducted as their 
principal residence;
(ii) an owner-occupant of the manufactured 
home on which repairs are to be conducted; or
(iii) an owner who can demonstrate an 
ownership interest in the property on which 
repairs are to be conducted, including a person 
who has inherited an interest in that property.
(4) Eligible landlord.--The term ``eligible landlord'' 
means an individual--
(A) who owns, as determined by the relevant 
implementing organization, fewer than 10 eligible 
rental properties, with a majority of affordable units 
and not more than 50 total units, operated as primary 
residences in which a majority ownership interest is 
held by the individual, the spouse of the individual, 
or the dependent children of the individual, or any 
closely held legal entity controlled by the individual, 
the spouse of the individual, or the dependent children 
of the individual, either individually or collectively; 
and
(B) who agrees to the provisions described in 
subsection (b)(3).
(5) Eligible rental property.--The term ``eligible rental 
property'' means a residential property that--
(A) is leased, or offered exclusively for lease, as 
a primary residence by an eligible landlord; and
(B) includes affordable units.
(6) Forgivable loan.--The term ``forgivable loan'' means a 
loan--
(A) made to an eligible landlord;
(B) that is secured by a lien recorded against a 
residential property; and
(C) that may be forgiven by the implementing 
organization not later than the date that is 3 years 
after the completion of the repairs if the eligible 
landlord has maintained compliance with the loan 
agreement described in subsection (b)(3).
(7) Implementing organization.--The term ``implementing 
organization''--
(A) means a unit of general local government or a 
State that--
(i) will administer a whole-home repairs 
program through an agency, department, or other 
entity; or
(ii) enter into agreements with 1 or more 
local governments, municipal authorities, other 
governmental authorities, including a tribally 
designated housing entity, or qualified 
nonprofit organizations, to administer a whole-
home repairs program as a subrecipient; and
(B) does not include a redundant entity in a 
jurisdiction already served by a grantee under 
subsection (b).
(8) Indian tribe.--The term ``Indian tribe'' has the 
meaning given the term in section 4 of the Native American 
Housing Assistance and Self-Determination Act of 1996 (25 
U.S.C. 4103).
(9) Qualified nonprofit.--The term ``qualified nonprofit'' 
means a nonprofit organization that--
(A) has received funding, as a recipient or 
subrecipient, through--
(i) the Community Development Block Grant 
program under title I of the Housing and 
Community Development Act of 1974 (42 U.S.C. 
5301 et seq.);
(ii) the HOME Investment Partnerships 
program under subtitle A of title II of the 
Cranston-Gonzalez National Affordable Housing 
Act (42 U.S.C. 12741 et seq.);
(iii) the Lead-Based Paint Hazard Reduction 
grant program under section 1011 of the 
Residential Lead-Based Paint Hazard Reduction 
Act of 1992 (42 U.S.C. 4852) or a grant under 
the Healthy Homes Initiative administered by 
the Secretary pursuant to sections 501 and 502 
of the Housing and Urban Development Act of 
1970 (12 U.S.C. 1701z-1, 1701z-2);
(iv) the Self-Help and Assisted 
Homeownership Opportunity program authorized 
under section 11 of the Housing Opportunity 
Program Extension Act of 1996 (42 U.S.C. 12805 
note);
(v) a rural housing program under title V 
of the Housing Act of 1949 (42 U.S.C. 1471 et 
seq.); or
(vi) the Neighborhood Reinvestment 
Corporation established under the Neighborhood 
Reinvestment Corporation Act (42 U.S.C. 8101 et 
seq.);
(B) has coordinated, performed, or otherwise been 
engaged in weatherization, lead remediation, or home-
repair work for not less than 2 years;
(C) has been certified by the Environmental 
Protection Agency, or by a State authorized by the 
Environmental Protection Agency to administer a 
certification program, as--
(i) eligible to carry out activities under 
the lead renovation, repair and painting 
program; or
(ii) a Home Certification Organization 
under the Energy Star program established by 
section 324A of the Energy Policy and 
Conservation Act (42 U.S.C. 6294a) or the 
WaterSense program under section 324B of that 
Act (42 U.S.C. 6294b), or recognized or 
otherwise approved by the Environmental 
Protection Agency as a Home Certification 
Organization under either of those programs; or
(D) is a community development financial 
institution, as defined in section 103 of the Community 
Development Banking and Financial Institutions Act of 
1994 (12 U.S.C. 4702).
(10) Secretary.--The term ``Secretary'' means the Secretary 
of Housing and Urban Development.
(11) Specified program.--For purposes of paragraph 
(3)(A)(ii), the term ``specified program'' means any of the 
following:
(A) The Medicaid program established under title 
XIX of the Social Security Act (42 U.S.C. 1396 et 
seq.).
(B) The State Children's Health Insurance Program 
established under title XXI of the Social Security Act 
(42 U.S.C. 1397aa et seq.).
(C) The supplemental security income benefits 
program established under title XVI of the Social 
Security Act (42 U.S.C. 1381 et seq.).
(D) The supplemental nutrition assistance program 
established under the Food and Nutrition Act of 2008 (7 
U.S.C. 2011 et seq.).
(E) The temporary assistance for needy families 
program established under part A of title IV of the 
Social Security Act (42 U.S.C. 601 et seq.).
(12) State.--The term ``State'' means--
(A) each State of the United States;
(B) the District of Columbia;
(C) the Commonwealth of Puerto Rico;
(D) any territory or possession of the United 
States; and
(E) an Indian tribe.
(13) Tribally designated housing entity.--The term 
``tribally designated housing entity'' has the meaning given 
the term in section 4 of the Native American Housing Assistance 
and Self-Determination Act of 1996 (25 U.S.C. 4103).
(14) Whole-home repairs.--The term ``whole-home repairs'' 
means modifications, repairs, or updates to homeowner or 
renter-occupied units to address--
(A) physical and sensory accessibility for 
individuals with disabilities and older adults, such as 
bathroom and kitchen modifications, installation of 
grab bars and handrails, guards and guardrails, lifting 
devices, ramp additions or repairs, sidewalk addition 
or repair, or doorway or hallway widening;
(B) habitability and safety concerns, such as 
repairs needed to ensure residential units are fit for 
human habitation and free from defective conditions or 
health and safety hazards; or
(C) energy and water efficiency, resilience, and 
weatherization.
(b) Pilot Program.--
(1) Establishment.--Not later than 1 year after the date of 
enactment of this Act, the Secretary shall establish a pilot 
program to provide grants to implementing organizations to 
administer a whole-home repairs program for eligible homeowners 
and eligible landlords.
(2) Use of funds.--An implementing organization that 
receives a grant under this subsection--
(A) shall provide grants to eligible homeowners to 
implement whole-home repairs not covered by other 
Federal home repair programs and up to a maximum amount 
per unit, which maximum amount should--
(i) reflect local construction costs and 
the level of repairs needed in each unit; and
(ii) be calculated and approved by the 
Secretary;
(B) shall provide loans, which may be forgivable, 
to eligible landlords to implement whole-home repairs 
not covered by other Federal home repair programs for 
individual affordable units, public and common use 
areas within the property, and common structural 
elements up to a maximum amount per unit, area, or 
element, as applicable, which maximum amount should--
(i) reflect local construction costs; and
(ii) be calculated and approved by the 
Secretary;
(C) shall evaluate, or provide assistance to 
eligible homeowners and eligible landlords to evaluate, 
whole-home repair program funds provided under this 
subsection with Federal, State, and local home repair 
programs to provide the greatest benefit to the 
greatest number of eligible landlords and eligible 
homeowners and avoid duplication of benefits and 
redundancies;
(D) shall ensure that--
(i) all repairs funded or facilitated 
through an award under this subsection have 
been completed;
(ii) if repairs are not completed and the 
plan for whole-home repairs is not updated to 
reflect the new scope of work, that the loan or 
grant is repaid on a prorated basis based on 
completed work; and
(iii) any unused grant or loan balance is 
returned to the implementing organization, and 
is reused by the implementing organization for 
a new whole-home repair grant or loan under 
this subsection;
(E) may use not more than 5 percent of the awarded 
funds to carry out related functions, including 
workforce training for home repair professions, which 
shall be related to efforts to increase the number of 
home repairs performed and approved by the Secretary;
(F) may use not more than 10 percent of the awarded 
funds for administrative expenses; and
(G) shall comply with Federal accessibility 
requirements and standards under applicable Federal 
fair housing and civil rights laws and regulations, 
including section 504 of the Rehabilitation Act of 1973 
(29 U.S.C. 794).
(3) Loan agreement.--In a loan agreement with an eligible 
landlord under this subsection, an implementing organization 
shall include provisions establishing that the eligible 
landlord shall, for each eligible rental property for which a 
loan is used to fund repairs under this subsection--
(A) comply with Federal accessibility requirements 
and standards under applicable Federal fair housing and 
civil rights laws and regulations, including section 
504 of the Rehabilitation Act of 1973 (29 U.S.C. 794); 
and
(B)(i) if the landlord is renting the assisted 
units available in the eligible rental property to 
tenants receiving tenant-based rental assistance under 
section 8(o) of the United States Housing Act of 1937 
(42 U.S.C. 1437f(o)), under another tenant-based rental 
assistance program administered by the Secretary or the 
Secretary of Agriculture, or under a tenant-based 
rental subsidy provided by a State or local government, 
comply with the program requirements under the relevant 
tenant-based rental assistance program; or
(ii) if the eligible landlord is not renting to 
tenants receiving rental-based assistance as described 
in clause (i)--
(I)(aa) offer to extend the lease of 
current tenants on current terms, other than 
the terms described in subclause (iv) for not 
less than 3 years beginning after the 
completion of the repairs, unless the lease is 
terminated due to failure to pay rent, 
performance of an illegal act within the rental 
unit, or a violation of an obligation of 
tenancy that the tenants failed to correct 
after notice; and
(bb) if the tenant of an assisted unit 
moves out of the assisted unit at any point in 
the 3-year period following the loan agreement, 
maintain the unit as an affordable unit for the 
remainder of the 3-year period;
(II) provide documentation verifying that 
the property, upon completion of approved 
renovations, has met all applicable State and 
local housing and building codes;
(III) attest that the landlord has no known 
serious violations of renter protections that 
have resulted in fines, penalties, or judgments 
during the preceding 10 years; and
(IV) cap annual rent increases for each 
assisted unit at 5 percent of base rent or 
inflation, whichever is lower, for not less 
than 3 years beginning after the completion of 
the repairs.
(4) Application.--
(A) In general.--An implementing organization 
desiring an award under this subsection shall submit to 
the Secretary an application that includes--
(i) the geographic scope of the whole-home 
repairs program to be administered by the 
implementing organization, including the plan 
to address need in any rural, suburban, or 
urban area within a jurisdiction;
(ii) a plan for selecting subrecipients, if 
applicable;
(iii) how the implementing organization 
plans to execute the coordination of Federal, 
State, and local home repair programs, 
including programs administered by the 
Department of Energy or the Department of 
Agriculture, to increase efficiency and reduce 
redundancy;
(iv) available data on the need for 
affordable and quality housing within the 
geographic scope of the whole-home repairs 
program, and any plans to preserve 
affordability through the term of the award;
(v) how the implementing organization plans 
to process and verify applications for grants 
from eligible homeowners and applications for 
loans from eligible landlords; and
(vi) such other information as the 
Secretary requires to determine the ability of 
an applicant to carry out a program under this 
subsection.
(B) Considerations.--In making awards under this 
subsection, the Secretary shall--
(i) with respect to applications submitted 
by States other than the District of Columbia 
and the territories of the United States, 
prioritize those applications with a 
demonstrated plan to--
(I) make a good faith effort to 
implement the pilot program in every 
jurisdiction; and
(II) provide non-metropolitan 
areas, or subrecipients serving non-
metropolitan areas if applicable, with 
a share of total funds commensurate to 
their population;
(ii) aim to select applicants so that the 
awardees collectively span diverse geographies, 
with an intent to understand the impact of the 
pilot program under this subsection in urban, 
suburban, rural, and Tribal settings; and
(iii) not disqualify implementing 
organizations that were awarded grants under 
the pilot program in prior application cycles.
(5) Program information.--The Secretary shall make 
available to grant recipients under this subsection information 
regarding existing Federal programs for which grant recipients 
may coordinate or provide assistance in coordinating 
applications for those programs in accordance with paragraph 
(2)(C).
(6) Grant number.--In each year in which an award is made 
under this subsection, the Secretary shall award assistance 
to--
(A) not less than 2, and not more than 10, 
implementing organizations, as application numbers and 
funding permit; and
(B) not more than 1 implementing organization in 
any State.
(7) Loans that are not forgiven.--If a loan made by an 
implementing organization under paragraph (2)(B) is not 
forgiven, the loan repayment funds shall be reused by the 
implementing organization for a new whole-home repair grant or 
loan under this subsection.
(8) Supplement, not supplant.--Amounts awarded under this 
subsection to implementing organizations shall supplement, not 
supplant, other Federal, State, and local funds made available 
to those entities.
(9) Streamlining program delivery and ensuring 
efficiency.--To the extent possible, in carrying out the pilot 
program under this subsection, the Secretary shall--
(A) endeavor to improve efficiency of service 
delivery, as well as the experience of and impact on 
the taxpayer, by encouraging programmatic collaboration 
and information sharing across Federal, State, and 
local programs for home repair or improvement, 
including programs administered by the Department of 
Agriculture; and
(B) enhance collaboration and cross-agency 
streamlining efforts that reduce the burdens of 
multiple income verification processes and applications 
on the eligible homeowner, the eligible landlord, the 
implementing organization, and the Federal Government, 
including by establishing assistance application 
procedures for income eligibility under this subsection 
that recognize income eligibility determinations for 
assistance using any of the criteria under subsection 
(a)(3)(A) that have been used for assistance 
applications during the 1-year period preceding the 
date on which an eligible homeowner or eligible 
landlord applies for assistance under this subsection.
(10) Reporting requirements.--
(A) Annual report.--An implementing organization 
that receives a grant under this subsection shall 
submit to the Secretary an annual report on initial 
funding that includes--
(i) the number of units served, including 
reporting on both homeownership and rental 
units, as well as accessible units;
(ii) the average cost per unit for 
modifications or repairs and the nature of 
those modifications or repairs, including 
reporting on accessibility and both 
homeownership and rental units;
(iii) the number of applications received, 
served, denied, or not completed, disaggregated 
by geographic area;
(iv) the aggregated demographic data of 
grant recipients, which may include data on 
income range, urban, suburban, and rural 
residency, age, and racial and ethnic identity;
(v) the aggregated demographic data of loan 
recipients, which may include data on income 
range, urban, suburban, and rural residency, 
age, and racial and ethnic identity;
(vi) an affirmation that the implementation 
organization has complied with the applicable 
regulations, including compliance with Federal 
accessibility requirements;
(vii) in the first year of receiving a 
grant, and as certified in subsequent reports, 
a comprehensive plan to prevent waste, fraud, 
and abuse in the administration of the pilot 
program, which shall include, at a minimum--
(I) a policy enacted and enforced 
by the implementing organization to 
monitor ongoing expenditures under this 
subsection and ensure compliance with 
applicable regulations;
(II) a policy enacted and enforced 
by the implementing organization to 
detect and deter fraudulent activity, 
including fraud occurring in individual 
projects and patterns of fraud by 
parties involved in the expenditure of 
funds under this subsection;
(III) a statement setting forth any 
violations detected by the implementing 
organization during the previous 
calendar year, including details about 
steps taken to achieve compliance and 
any remedial measures; and
(IV) a certification by the chief 
executive or most senior compliance 
officer of the organization that the 
organization maintains sufficient staff 
and resources to effectively carry out 
the above-mentioned policies; and
(viii) such other information as the 
Secretary may require.
(B) Reporting requirement alignment.--To limit the 
costs of implementing the pilot program under this 
subsection, the Secretary shall endeavor, to the extent 
possible, to structure reporting requirements such that 
they align with the data reporting requirements in 
place for funding streams that implementing 
organizations are likely to use in partnership with 
funding from this subsection, including the reporting 
requirements under--
(i) the Community Development Block Grant 
program under title I of the Housing and 
Community Development Act of 1974 (42 U.S.C. 
5301 et seq.);
(ii) the HOME Investment Partnerships 
program under subtitle A of title II of the 
Cranston-Gonzalez National Affordable Housing 
Act (42 U.S.C. 12741 et seq.);
(iii) the Weatherization Assistance Program 
for low-income persons established under part A 
of title IV of the Energy Conservation and 
Production Act (42 U.S.C. 6861 et seq.); and
(iv) the Native American Housing Assistance 
and Self-Determination Act of 1996 (25 U.S.C. 
4101 et seq.).
(C) Pilot program period reports.--Not less 
frequently than twice during the period in which the 
pilot program established under this subsection 
operates, the Office of Inspector General of the 
Department of Housing and Urban Development shall 
complete an assessment of the implementation of 
measures to ensure the fair and legitimate use of the 
pilot program.
(D) Summary to congress.--The Secretary shall 
submit to the Committee on Banking, Housing, and Urban 
Affairs of the Senate and the Committee on Financial 
Services of the House of Representatives an annual 
report providing a summary of the data provided under 
subparagraphs (A) and (C) during the 1-year period 
preceding the report and all data previously provided 
under those subparagraphs.
(11) Funding.--The Secretary--
(A) is authorized to use up to $30,000,000 of funds 
made available as provided in appropriations Acts for 
programs administered by the Office of Lead Hazard 
Control and Healthy Homes to carry out the pilot 
program under this subsection; and
(B) shall submit to the Committee on Appropriations 
and the Committee on Banking, Housing, and Urban 
Affairs of the Senate and the Committee on 
Appropriations and the Committee on Financial Services 
of the House of Representatives a report on the 
appropriations accounts from which the Secretary will 
derive the funding under subparagraph (A).
(12) Environmental review.--A grant under this subsection 
shall be--
(A) treated as assistance for a special project for 
purposes of section 305(c) of the Multifamily Housing 
Property Disposition Reform Act of 1994 (42 U.S.C. 
3547); and
(B) subject to the regulations promulgated by the 
Secretary to implement such section.
(13) Termination.--The pilot program established under this 
subsection shall terminate on October 1, 2031.
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