The Federal National Mortgage Association (FNMA), commonly known as Fannie Mae, is a United States government-sponsored enterprise (GSE) and, since 1968, a publicly traded company. Founded in 1938 during the Great Depression as part of the New Deal,[3] the corporation’s purpose is to expand the secondary mortgage market by securitizing mortgage loans in the form of mortgage-backed securities (MBS),[4] allowing lenders to reinvest their assets into more lending and in effect increasing the number of lenders in the mortgage market by reducing the reliance on locally based savings and loan associations (or “thrifts”).[5] Its brother organization is the Federal Home Loan Mortgage Corporation (FHLMC), better known as Freddie Mac. In 2022, Fannie Mae was ranked number 33 on the Fortune 500 rankings of the largest United States corporations by total revenue.[6]
Background and early decades
Historically, most housing loans in the early 1900s in the United States were short term mortgage loans with balloon payments.[7] The Great Depression weakened the U.S. housing market, as people lost their jobs and were unable to make payments. By 1933, an estimated 20 to 25% of the nation’s outstanding mortgage debt was in default.[8] This resulted in foreclosures in which nearly 25% of America’s homeowners lost their homes to banks. To address this, Fannie Mae was established by the U.S. Congress in 1938 by amendments to the National Housing Act[9] as part of Franklin Delano Roosevelt’s New Deal. Originally chartered as the National Mortgage Association of Washington, the organization’s explicit purpose was to provide local banks with federal money to finance home loans in an attempt to raise levels of home ownership and the availability of affordable housing.[10] Fannie Mae created a liquid secondary mortgage market and thereby made it possible for banks and other loan originators to issue more housing loans, primarily by buying Federal Housing Administration (FHA) insured mortgages.[11] For the first thirty years following its inception, Fannie Mae held a monopoly over the secondary mortgage market.[10] Other considerations may have motivated the New Deal focus on the housing market: about a third of the nation’s unemployed were in the building trade, and the government had a vested interest in getting them back to work by giving them homes to build.[12]
Fannie Mae was acquired by the Housing and Home Finance Agency from the Federal Loan Agency as a constituent unit in 1950.[13] In 1954, an amendment known as the Federal National Mortgage Association Charter Act[14] made Fannie Mae into “mixed-ownership corporation”, meaning that federal government held the preferred stock while private investors held the common stock;[9] in 1968 it converted to a privately held corporation, to remove its activity and debt from the federal budget.[15] In the 1968 change, arising from the Housing and Urban Development Act of 1968, Fannie Mae’s predecessor (also called Fannie Mae) was split into the current Fannie Mae and the Government National Mortgage Association (“Ginnie Mae”).
Ginnie Mae, which remained a government organization, guarantees FHA-insured mortgage loans as well as Veterans Administration (VA) and Farmers Home Administration (FmHA) insured mortgages. As such, Ginnie Mae is the only home-loan agency explicitly backed by the full faith and credit of the United States government.[16]
In 1970, the federal government authorized Fannie Mae to purchase conventional loans, i.e. those not insured by the FHA, VA, or FmHA, and created the Federal Home Loan Mortgage Corporation (FHLMC), colloquially known as Freddie Mac, to compete with Fannie Mae and thus facilitate a more robust and efficient secondary mortgage market.[16] That same year FNMA went public on New York and Pacific Exchanges.[17]
In 1981, Fannie Mae issued its first mortgage pass-through and called it a mortgage-backed security. Ginnie Mae had guaranteed the first mortgage pass-through security of an approved lender in 1968[18] and in 1971 Freddie Mac issued its first mortgage pass-through, called a participation certificate, composed primarily of private mortgage loans.[18]