We obtain a sufficient and necessary condition for a finite group to act effectively on a closed flat manifold. Let \ $G=E_{ n}(R)$, $EU_{ n}(R,\Lambda ),$ $\mathrm{ SAut}(F_{ n})$ or $\mathrm{ SOut}(F_{ n}).$ As applications, we prove that when $n\geq 3$ every group action of $G$ on a closed flat manifold $M^{ k}$ ($k<n$) by homeomorphisms is trivial. This confirms a conjecture related to Zimmer's program for flat manifolds. Moreover, it is also proved that the group of homeomorphisms of closed flat manifolds are Jordan with Jordan constants depending only on dimensions.
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