I think you are missing how the regulators were enforcing CRA:
"In 1995, regulators began to enforce the CRA in a very different way than they had in the past. Instead of focusing on the process of bank lending, the new regulations were focused on objective performance evaluations. At the same time, regulators began disclosing more information about particular banks.
As one commenter put it at the time, “We have learned from 30 years of CRA policy that what is measured gets done.” In short, publicly measuring low-income loans encouraged more of it. And the way regulators advised making low income loans involved features we now regard as toxic.
In November 2000, then-HUD Secretary Andrew Cuomo announced that Fannie Mae and Freddie Mac were committed to purchasing $2 trillion of “affordable housing” mortgages. This greatly increased the willingness of banks to make the kind of mortgages being promoted by the regulators. As the push factor of the CRA was increasing, the pull factor of Fannie-driven securitization was also increasing."
"But don’t mistake this as something that only occurred during the Clinton administration. The Bush administration was also active in pushing expanded home-ownership. That history has been well-explored elsewhere. Instead, I’d like to focus attention on one seemingly unintended way a Bush administration CRA reform helped contribute to lax lending standards.
In early 2005, largely at the behest of the banking sector, the Office of Thrift Supervision implemented new rules that were widely perceived as weakening the CRA. Supervision of banks with under $1 billion in assets was loosened, and larger banks were allowed to voluntarily reduce the amount of regulator scrutiny of their “investment” and “service”–two long-standing categories of assessment under the CRA.
This had two unintended consequences that would later prove to be very costly. In the first place, it increased CRA scrutiny of larger banks, who were now the main focus of regulators. This put even more pressure on the banks to make CRA loans. Secondly, by allowing banks to de-emphasize “investment” and “service,” the new regulations created an even greater incentive for banks to meet CRA obligations by making home loans."