Allow 1st and 2nd mortgages government backed or not to be combined into 1 at lower rates for underwater properties

Allow first and second mortgages whether government backed or not to be combined into one at a lower interest rate for homeowners underwater on their mortgages. Most people with first and second mortgages still cannot refinance because of not meeting certain criteria. For instance my home is worth $225k and I owe $180k on first and $75k on second at 6.125 & 11.6 percent interest rates respecitvely but the banks won't refinance because i am underwater but if I could combine the 2 into 1 at a 4% rate I would save over $1,000 per month