On April 1, HUD issued the fiscal year 2025 income limits that determine eligibility for its HUD-assisted housing programs and for Multifamily Tax Subsidy Projects (MTSP) housing programs. MTSPs, a term coined by HUD, include all Low-Income Housing Tax Credit (LIHTC) projects under Section 42 of the Internal Revenue Code and multifamily projects funded by tax-exempt bonds under Section 142, which generally also benefit from LIHTCs. These projects may have special income limits established by statute. The newly issued income limits became effective immediately and can be found at www.huduser.gov/portal/datasets/mtsp.html.

If you find that income limits in your area have increased, it may be worthwhile to revisit any files previously denied over the past few months. Slightly over-income households that had been denied may now qualify under the updated limits. As in prior years, the IRS allows a transition period between the date of publication and the date of required implementation. According to IRS Revenue Ruling 94-57, the new income limits must be adopted no later than 45 days after HUD’s publication date. For LIHTC properties, this means the 2025 income limits must be implemented no later than May 16, 2025.

The newly released income limits continue to show an upward trend, though the degree of increase varies by region. In this update, we’ll review how the limits have changed for 2025 and explain how to apply them. We’ll also discuss how an owner’s minimum set-aside election on IRS Form 8609 determines which income limits apply to a LIHTC property.

What Changed for 2025

On average, income limits across the country rose by approximately 6.2 percent, with over 70 percent of areas experiencing increases greater than 5 percent and nearly 40 percent seeing increases above 8 percent. In fact, about 27 percent of areas hit HUD’s cap for allowable increases at 9.2 percent. At the same time, around 5 percent of areas saw slight decreases in their limits.

These results were somewhat surprising, given that initial forecasts had suggested a more modest national average closer to 3 percent. The key reason for the higher numbers lies in HUD’s shift in methodology for calculating inflation. Until this year, HUD used the Consumer Price Index (CPI) to project forward the median income data from the American Community Survey (ACS). For 2025, however, HUD adopted a new approach, basing the projection on changes in per capita wage and salary income instead.

To understand the impact of this change, consider an area with a median income of $100,000. Under the old CPI method, that figure would have been adjusted to approximately $104,600 for 2025. With the new wage-based method, it becomes $108,000, resulting in a higher income limit for that area. This shift in methodology played a major role in pushing many areas above the anticipated range and continues to influence how eligibility for affordable housing is determined nationwide.

How Income Limits Are Calculated

As income limits increase, more people will be able to qualify for affordable housing. And more people qualifying will increase the demand for affordable housing, which is beneficial to owners, but puts even more strain on those looking for affordable housing.

When talking about HUD income limits, we are actually talking about two income parameters. One of them is HUD’s estimate of median family income, and the other involves the income limits derived from that estimate. HUD calculates a median family income for each metropolitan area and each nonmetropolitan county throughout the country. HUD uses ACS data as the basis for that calculation. For FY 2025 median incomes, HUD used 2022 ACS median family incomes. For all places in the U.S. including Puerto Rico, the estimates are then inflated from 2022 to the current fiscal year using the Consumer Price Index forecast from the Congressional Budget Office.

Application of the 9.2% Cap

HUD continues to apply its policy of capping the year-to-year increase in income limits. In 2024, HUD introduced an additional safeguard called the “cap-on-cap” rule, which limits the maximum increase in any year to 10 percent, even if twice the national median income change would suggest a higher cap. For 2025, the national median income rose by about 4.6 percent, which under the cap calculation rules resulted in a maximum allowable increase of 9.2 percent. HUD reported that more than a quarter of the areas reached this 9.2 percent limit. Without this cap, increases in those areas would have averaged closer to 14 percent.

HUD emphasized that this cap is designed to protect tenants from sudden and significant rent increases, reduce the impact of statistical volatility particularly in areas where small sample sizes can distort income data, and provide developers and owners with greater certainty when planning affordable housing projects.

How Income Limits Are Used

Site owners and managers use these figures provided by HUD to determine the income eligibility of low-income tenants in accordance with LIHTC requirements. For the LIHTC programs, HUD publishes income limits from 20 percent to 80 percent of area median income (AMI) for one- to eight-person families to accommodate projects using the income-averaging set-aside. In addition, when applicable, MTSP HERA Special Income Limits are also posted.

Households must be income qualified at move-in, and income changes after move-in don’t affect a household’s eligibility to remain in the low-income unit but may affect leasing requirements for other units at the site. Income requirements are affected by:

• The maximum income limit for qualified low-income households, as determined by the owner’s minimum set-aside election;
• The number of units that must be affordable to, and inhabited by, qualified households, as determined by the minimum set-aside election and by the applicable fraction of low-income units; and
• The number of years low-income units must be inhabited by qualified households, as defined in the site’s extended use agreement.

Maximum Income Limit

The owner’s minimum set-aside election on IRS Form 8609 determines which income limits apply to a LIHTC property. In the first year of the credit period, the owner selects a minimum set-aside, committing to rent a specified number of units at rents affordable to households whose incomes do not exceed a designated income limit. This is called the minimum set-aside, and it’s defined by the following tests:

• 20-50 test: 20 percent of units must be rented to households with incomes at 50 percent of AMI;
• 40-60 test: 40 percent of units must be rented to households at 60 percent of AMI;
• Average income test: At least 40 percent of units are rent restricted, with an average income limit of 60 percent of AMI and with a maximum income limit no higher than 80 percent of AMI. The maximum income limit of any unit included in the average must be 20, 30, 40, 50, 60, 70, or 80 percent of the area median gross income.

The site owner makes the minimum set-aside choice on the IRS Form 8609 when claiming the first year of tax credits. Once an election has been made, it’s irrevocable throughout the compliance and extended use periods. The minimum set-aside election determines the income limit applied to all the low-income units at the site. Maximum income limits are calculated as a percentage of the area median income and are adjusted by household size. Area median incomes are calculated by the federal government on an annual basis to reflect changes in the economy.

HERA Requirements

In general, LIHTC sites use the MTSP income limits, developed to meet the requirements of the Housing and Economic Recovery Act (HERA) of 2008. And sites placed in service before Jan. 1, 2009, may be eligible to use HERA special limits, if they’re also located in qualified counties.

HERA includes two measures to protect LIHTC owners from falling median incomes that would otherwise force a drop in income and rent limits:

Hold harmless policy. HERA applies this to income and rent limits for all LIHTC sites. It protects the limits from dropping after a project has been placed in service. In other words, the limits in effect at an existing project won’t be forced downward in years when the area median income drops, causing that year’s MTSP limits to decline. However, the new, lower MTSP limits will be in effect for any new LIHTC projects that were not already in service during the previous year.

Special HERA limits. HERA special limits apply only in those counties where MTSP income and rent limits would have dropped in 2009 due to dropping area median incomes, but where the hold harmless policy was applied to stop them from doing so. Within those qualified counties, the HERA special limits apply only to those LIHTC projects that were in service before Jan. 1, 2009, and so would have been affected if the hold harmless policy wasn’t applied. HUD identifies these income limits in the MTSP tables and documentation systems as “HERA Special” and states they are only for use by sites in service in 2007 or 2008.

Sites that have been refinanced with a new round of tax credits after 2009 no longer qualify for HERA special incomes and rents because their placed-in-service date is reestablished with the new LIHTC allocation, and they’re no longer considered to have been in service prior to 2009.

Multiple Building Election

For sites with multiple buildings, the placed-in-service date is an important consideration when selecting income limits because the date affects application of HERA’s hold harmless policy. Each building at an LIHTC site has its own building identification number (BIN) and its own placed-in-service date. As such, the owner’s election of whether buildings will or won’t be treated as part of a multiple-building project can affect the application of income limits at the project.

Example: Suppose the owner elected to treat a building as part of a multiple-building-project, by checking yes to item 8(b) on the IRS Form 8609. Then, the project’s placed-in-service date is the date the first building in the project is placed in service. If the owner elected to not treat a building as part of a multiple-building-project, by checking no to item 8(b) on the IRS Form 8609, then each building (BIN) where this election is made is considered a separate project, and the income limit applicable is based on the building’s placed-in-service date.

Other Financing Sources

Owners with projects that qualify for HERA special limits under the LIHTC program should also take care that they’re not required to use more restrictive limits by other housing programs tied to their site.

Example: Where sites have other sources that also carry income and rent limits, owners must use the most restrictive limits that apply to that unit. If a site has both LIHTC and HOME funding, it may qualify to use HERA special limits for any LIHTC units at the site that don’t use HOME funds. However, the site’s HOME units are also bound to HOME income and rent limits. Any units that are covered by both HOME and tax credits must compare the HOME limits to the HERA special limits, and use whichever is most restrictive.