275537 WMITE - CITV CLERK I COUIICIl �����
PINK � - FINANCE GITY OF SAINT PAUL 1
CANAR`!- DEPARTMENT
�BLUE - MAVOR �. Flle NO.
Council� Resolut�on
Presented By
Referred To I Committee: Date
I
Out of Committee By � Date
j 2.
i
I
reference) as an amendment to � the Comprehensive Plan of the City
of Saint Paul and, further, t}�at the Planning Commission recom-
mended adoption of the housin� plan to the City Council; now,
therefore, be it
RESOLVED, That the City Council of the City of Saint Paul
does hereby adopt the housingiplan - Housing St. Paul 1980-1990
as an amendment to the City of Saint Paul Comprehensive Plan.
COUNCILMEN
Yeas Nays Requested by Department of:
utler Hunt''
zza Levin� In Favor
H Maddox
� e McMahort __ Ag81t1St BY
ad ox Showalter
hOW it
Tedesc e esco
Ado ted by Council• Son Date �UG 2' g 19�� Form A p ved by City Attomey
ertified �5• by C uncil Secretary BY ` � � �
� UG 2 9 iggp APP�o� a or for Submi to Council
Approve avor: D —
4 BY . — — — BY
Pi�USHED S E P 6 1960
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DATE• April 10, 1980 ;� � ���k�_ '
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TO: The Bosrd of Directors R �`�';�_���;��` '
rROM: Local Government 'Pask Force '�''�•��"'''x`�• �"
�
AndreW Becher, Chair
SAINT PAUL
ACTION REQUESTED• Approval AREA CHAMBER
OF COMMERC:E
SU1TM: 7'HFtF:Is IlUNUI2F:U
THF: OS[�ORN I3[III,llING
Policy Stat�ment Of the SAIN'f I'AUi,, MINNh:S(�7'A
Saint Paul Ares Chamber of Commerce 5�loz • I'If<)NF.: l�z-ssc�
Regarding the Planning Commission's Housing Policy Plan
and the Mayor's Housing Task Force Report
------------------------------------------------------------
Introduction
Saint Paul ia feeling th� effects of a nationatide hotising shortage
for o�rned and rental units - a recorded vacancy r�te of 4.89'0,
the la►est level in 20 yeara. Saint Paul's av�rage vacancy
rate in January, 1979 Wgs 1.2%. Thia problem ia compounded by
the critical state of the economy. The supply of credit to finance
multi-family units is minimal and developers are facing a current
prime inCerest rate of 20'1'e. The traditional rule of thua�b that
no more than 25X of your grosm income ahould be spent for housing
is a moot point .with the high intereat rates, snd it is not unuaual
for a family to be paying 35-409� of their gross income for housing.
The Saint Paul Planning Commission has set a goal of constructing
at leaat 10,000 neW housing units in the City by 1990 to help .
alleviate the housing shortage. In order to meet that goal, the
Commisafon has developed a draft Housing Policy Plan 1980-1990, (H.P.P. )
which muat be in conformance with the l�tropolitan Council's
comprehensive plan.
The Iasues
' Tha Metropolitan Chamber's houaing philosophy is as followa : Regardless
of income, race, age or family size, all residents ahould have a
decent place to live, a choice o:E houaing locations and houaing they
can afford. The Local GovernmenC T�k Force haa revieWed the H.P.P.
alona With the report complated bq thn Mayor'a Housing Task Force.
Thia policy atstem�nt repreaenta the Chamber's analysia and input on
theae tWO reports. The Chamber has concluded there are five areas of
concern which must be considered While addressing the current and
future housing dilemna:
Rental Housing
Home Ownership Coats
Condominiva Conversiona
� Public Houaing Assiatance �
Neighborhood Involvement
' • Planning Commission's Housing Po�.icy Plan
and the Mayor's Housing Task Force Statement P�ge 1�wo
The Local Government Taak Force believes that the City should have
a limited role in the housing arena, and that the public prograr� should
be aimed at promoting general development and redevelopment of
housing units throughout the City and not concentrated in specific
communities. The prograa� should encourage a healthy economic mix
Within the neighborhoods and a lpng-term monitoring of the needa
of the communities.
In the following recoeamendations, please note:
3upport: The I,ocal Gowernment Taak Force supports
an existing policy.
Reinforce: The Loca1 Government Taak Force wants to
emphasfac the importance of the policy
srhich w�s not �iven the priority it
should have in the reports.
Recommend: The Loca�l Governm�nt Taak Force believea
thia policy atr�uld be included in the
reports.
Rental Housing
The Planning Commission estimates that approximately 47% of Saint
Paul households are renters. Ttyere is a continual demand for more units
which are currently unavsilable. The lack of rental housing available
is due to the high coat of money, the fluctuating availability of credit,
high conatruction and land acquis ition expensea, the cost of governmental
regulations and the fact that rental income has not kept pace with
increased coats. Rents p�yable have increased dramatically due to the
lack of available rental houaiag, snd according to the Housing Advisory
Task Force,
"A recent Saint Paul Planning Division
Study found that rents increa�sed an
average of 439e between February 1976
�• and Auguat 1979. In compariaon, median
family income increased only 197'o from
1976 - 1979."
Local Government Task Force Poliicy Recommendationa :
1) Supports the policy that all public housing prograca� should be coordinated
with buaineas, labor and organizationa to ensure that progr�m ef.fective-
nass ia aAaximized. Since Section a funda froa HUD may be drying up,
alternative forma of public f inancing should be developed. The Port
Authority, comprised of public officiala and representatives of the
privste aector, receatly voted to asaiat in the financing of multi-
fa�aily rental units when no other alternativea exiat to provide housing
pith a reasonable rent atructure.
� Planning Coamission's Housing Policy Plan
and the Mayor's Housing Task Force Statement Page Three
2) Reinforce policy that public housing programs should not
encourage clusters of low-income housing, but promote a
heslthy economic mix for the coc�unity.
3) Recommend that programs such as the McKnight Minneapolia/Saint Paul
�mi�Housing Fund should be encouraged to assist families With
monthly rent payments on a graduated acale With a payback provision.
4) Rec000e�nd that all rental housing, one - multi-family units
should be certified a�a to code compliance with an initial
certif icate of occupancy as aell as be recertified every three
years. Code enforcement must be strengthened to prevent deferred
maintenance �hich often leads to condemnation.
S) Recammend that conatruction of ne� rental units ahould be encouraged
throuSh a sechanism similar �to the homeetead credit. Lundlords
are taxad highly for tY�se �inits and thia tax str�x ture adds one
eora disiacentive to build thas� badly needed �its. Ttts Task
Force believes such a revised tax policy would help keep the
rent costa doira. _
6) �co■�and that there ahould be no property tax incraases for re-
habilitition of these units. At tt� time of the aale of the
proparty, the ne� buyer would be assessed at the n►�rkat value of
tha property; hoirever, the tax �hould be amortized over aeveral years.
Ho�e O�rnership Costs
HoQa o�rnerahip is faat becoming a costly luxury due to the high interest
rates offered on both federal program�s, such as F1iA and conventional loans,
and the inflated cpsta of hoce�s. Thoae able to afford the high intere�t
rates otten cannot pool enoubh resources Co meet the down payment requirement
of 209'. or more. According to the Saint Paul Board of Realtors, the
average price of a home sold in 1979 Was up 16.T1', from 1978. During the
laat five years, there h�s been an overall price increase of 72%. The
City haa responded to this problem through the Well-publiciaed BMIR
., program (Belov Market Interest Rate), offering $80 million in revenue
bonds financed at an intereat rate of 8.59'0, aa Well as through other
programs.
Local Government Taak Force Poliay Recoc�nendationa :
1) �teco�nd that programs such as the McKnight Minneapolis/Saint Paul
Family Houaing Fund should be encouraged which Would provide grants
Co reduce mortgage amounts for families purchasing nCw or existing
residential unita.
2) „j���g�, that progra� Mhich aould reduce the miniaaum doirn-
puyment amounta ahould be studied and implemented.
3) Su rt the policy thtt the City should ensure that the Minneaota
H4using Finance Agency home aWn.ership proarsm rasources and other
aources to provide broader accesa to hoaie amerahip are f ullp and effec-
tively used in thc City.
Planning Commission's Housing Policy Plan
and the Mayor's Housing Task Force Statement Page Four
4) itcinLorcc �lic policy Chat Cl�e private financial indus�ry
potential to meet as much of the lending needs of Citq
residents as possible should be explored.
5) Support the policy that the City should continue to support and
eneourage the involvement of the private financial industry in
housing counseling services and the provision of financial
as�iatance. The City should act as a clearinghouse for new
governmental progra� and provide information to the public
and private sectors.
6) Recommend that there should be no property tax increases for re-
habilitation of these units, At the time of the sale of the
property, the new buyer woul� be assessed at the market value of
the property; however, the t�x should be amortized over several years.
Condominium and Cooperative Conversfons
One of the waya to meet the multf-family, home ownership needs of
the City is to convert exiating apartments into Condominiva�.s or
Cooperatives. According to the Mayor's Housing Taak Force, the
rate of condominium conversion haa increaaed aignificantly in Saint Paul:
in 1970, 1 unit Was converted and by L979, 18 units were converted. A
very seriouas concern which must be addreased regarding this gro�th in
conversions ia the displacement of reaidents who are renting a unit in
the building.
Local Government Task Force Recoaxnendations :
1) Suaports the policy that the City should encourage new hous ing
construction to emphasize high intensity developments (multi-family) ,
including townhouses, condominiva�s and cooperatives with consideration
of the effect on the neighborhoods.
2) Supports the policy that the City should consider the conversion to
condominiums and cooperatives in vie� of displaceonent and lack of
•• rental houaing and the effect on the nefghborhooda. Diaplaced
reaidents should be �iven reasonable notice and the righ[ to buy
the condominium. The City should continue to asaist diaplaced
residents in relacation.
�
3) Supports the policy that the Truth In Housing �rdinance should be
amended to include condominiums and cooperatives in order to
encourage purchaae of these previoualy-o`rned units.
4) Recommends that the City shauld encourage the sale of tax-forfeited
vacant structures for ttie purpose of a e �e�b litat�o�} of �
multi-family units.
Planning C�mmission's Housing Policy Plan
and the Mayor's Housing Task Force Statement Page Five
Public llousing Assistance Coordination
Presently, Che City coordinates Saint Paul housing programs
supported by funds from the local, state and national housing assistance
offices. The City office in charge of the coordination is the
Depatrtment of Planning and Economic Developm�ent, e�tabliahed in 1977,
Which is composed of four diviaions : R�neWal, Coma►unity Development,
Planning and Economic Development.
Local Government Taak Force Recotnmendations :
1) Supports the policy that the City should continue to coordinate
the activities of other public housing assistance off ices to
ensure that the specific hous ing needa of the residential communities
are met in the areas of s ing�le and mult i-family hous ing and
elderly housing alternatives�.
2) Recommands that the Planning Commission and Housing Taak Force
si�ould meet again in three years to determine the effectiveness
of City housing prograc�, review houaing needa and evaluate the
implementation of the City's housing policies.
3) Supports the policy that the Public Housing Information Office should
continue as the public access vehicle on public and private housing
progracas available to City residents.
Ncighborhood Involvecnent
In 1975, the City Council approved of a systematic but flexible
citizen participation process. The City was divided into 17 areas,
and each area is represented by a District Council which participates
" in short-term and long-range planning. Historically, these Councils
have played a minor role in the houaing planning process.
Local Government Task Force Recommendations :
�• 1) Supports the policy that the Planning Coaamiaaion should continue
to provide overall planning for housing in the City.
2) Su�porta the policy that Di�trict Council.s, in coordination with the
buaine�a coanunity of that area, should prepare a neighborhood housing
development plan to specify where additional housing developc►xnt should
be located and of what tyge aa Well aa to i►here rezoning from single
residence to multi-unit ho�ing ia poaaible. The plans ahould be in
conformance with the Houaing Policy Plan.
Conclusion
The Local Government Taak Force recognizes that Saint Paul is currently
� undergoing a housing crisis in rental and o4med units, aingle and multi-
family. Rather than stressing continued public financed housing programs ,
Planning Commission's Housing Policy Plan Page Six
and the Mayor's Housing Task Force Statement
as the Planning Commission does, the Committee believes the
focus should be on the private sector to vosk in coordination With
public agencies and the community planning process to provide short
and lon�-term solutiona to the criais. Governeoental regulationa ahould
be amended to provide tax incentiy�s for buflders. ranters and
o�►ners alike. The Cocrnittee doea not have a recoc�endation as to the
portion of rental/c�►ner uxiits required for the he�lth of the
comaiunity, but recognizea that th�.a queation muat be addreased in
f ormulating long range houaiag plans .
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� � � ;� ; ���-�i-�-;�"s i�� p i� CITY DEVELOPMENT AND TRANSPORTATIO�t .
Leonard W. Levine , ct�aiFina �+, ma�;es fihe foIi��.vin�.
repor; on C. F. � O�clinar?ce
� [] P.�solu'rion
. � � O�t�er
� �} �� ; Housi ng Pol i cy Pl an 1980-1990 . � �
The Comm�ttee recommends approval of the Housing Policy
Plan 1980-1990 and further recommends that a public �
hearing be hel.d by the City Council on this Plan. �
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�- - - Committee a iet�er vf the Msyo trea+�mitting thc Hquair�g Pa'�.icy ,
-_ ,plan +• "Housin� St. Paul i98Q•• 99b" �s approvad by the� Pl.�r�ring, ��
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rr�ro�� (�i_) La�s-��c3�_�
May 5, 1980
C�ouncil President JoAnne Showalter and
Members o-f the City CouncYl
City Hall , Seventh Floor
St. Paul , MN 55102
Re: Transmittal of Housing Policy Plan -
"Housing St. Paul 1980-1990"
Dear Council President Showalter and Plembers of the City Council :
On april 25, 1980, after holding a public hearing, the Planning Corr�nission
ad�pted the Housing Policy Plan - "Housing St. Paul 1980-1990". Before the
plan can becorne a legal amendment to the Comprehensive Plan, City Cou�cil
adoption is also required. I am distribwting to you copies af the plan for
review preparatory to your public hearirg on the plan. -
The Housin� Policy Plan has already undergone an extensive review pracess. It
��ras circulated by the Planning Commission to all district councils, City
departments and agencies and numerous private organizations and individuais.
Mr. Bellus, in his letter to me, made a speczal comment on the Housing Policy
Plan. At the April 25, 1980 Public Hearing some nf the speakers expressed
concerns aver the most appropriate means for implementing the plan`s objectives
and policies. The Planning Commission feels that most of these concerns should
b� addressed in the upcoming housing implementation plan. Scheduled for com-
pletion this summer, the housing implementat�on plan will specifically outline
the various private and publ�c actions necessary to support and carry out the
adopted Housing Policy Plan.
I am pleased to transnit the Housing Policy Plan "Housing St. Pau1 1980-1990"
to the City Counci7 for your review and action.
Sincerely,
;.., ` �
�"�'' _,-
, � ,,
��t;�,��,�.t,�.�_-----.,.
' eor,�;e Lat�mer
MaybJ
cc: James Zdon '
GL/dmm
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i Ho �n
us g
'� '
aint Paul
� - 19 0 •1990
8
� An Element
� of the
1 �
Comprehens�ve
� Plan forthe �
City of
1 �
Sa�nt Paul
�
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, HOUSING ST. PAUL 1980-1990
AN ELEMENT OF THE COMPREHENSIVE �,����
' PLAN FOR THE CITY OF ST. PAUL
, ADOPTED BY THE PLANNING COMMISSI N F
0 0 THE CITY OF
ST. PAUL AS AN AMENDMENT TO THE COMPREHENSIVE PLAN,
, APRIL 25, 1980. RESOLUTION 80-09.
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' DEPA�TMENT OF PLANNING & ECONOMIC DEVELOPMENT
DIVISION OF PLANNING
25 WEST FOURTH STREET
' ST. PAUL, MINNESOTA 55102
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, TABLE OF CONTENTS
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SUMMARY
t1.0 INTRODUCTION 1
1 .1 PURPOSE 1
, .2 ORGANIZA ION OF PLAN 2
1 .3 BACKGROUND 2
1 .4 HOUSING GOALS 4
, 2-0 HOUSING SUPPLY 5
2.1 OBJECTIVE 5
' 2.2 POLICIES 7
2.2.1 HOUSING TYPE & SIZE 7
2.2.2 L ND USE & NEIGHBORHOOD CH CTER 9
, - 2.2.3 ENERGY EFFICIENT HOUSING 10
2.2.4 CONVERSION OF EXISTING HOUSES 11
2.3 IMPLEMENTATION 3
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3.0 AFFORDABLE HOUSING
3.1 OBJECTIVE 17
, 3.2 POLICIES 8
.2.1 AF ORDABLE RENTAL HOUSING 18
3.2.2 DISPLACEMENT: CONDOMINIUM & COOPERATIVE 20
, CONVERSION
3.2.3 AFFORDABLE OWNERSHIP OPPORTUNITIES
.2.4 COOPERATIVE HOUSING
3.3 IMPLEMEN ATION
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4.0 HOUSING ASSISTANCE 28
' 4.1 OBJECTIVE
.2 POLICIES $
4.2.1 ASSISTANCE FOR LOWER INCOME HOUSEHOLDS 28
1 4.2.2 FORMS OF HOUSING ASSISTANCE 32
4.2.3 LOCATION OF ASSISTED HOUSING 3 �
4.2.4 ECONOMIC MIX �
4.2.5 PUBLIC HOUSING
' 4.3 IMPLEMENTATION �
' S.0 NEIGHBORHOOD QUALITY
5.1 OBJECTIVE 42
5.2 POLICIES
' 5.2.1 .CON�4IITMENT TO NEIGHBORHOOD IMPROVEMENT 3
. NEIGHBORHO D IMPR VEMENT PROGR S
5.2.3 NEIGHBORHOOD IMPROVEMENT ROLES �6
5.2.4 REHABILITATION ASSISTANCE
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TABLE OF CONTENTS (CONTINUED) '
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5.2.5 PUBLIC IMPROVEMENTS 50 '
5.2.6 IMPROVEMENT OF ENERGY EFFICIENCY 52
5.3 IMPLEMENTATION 54
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6.0 MAINTENANCE 56
6.1 OBJECTTVE 56 '
6.2 POLICIES 56
6.2.1 CODE ENFORCEMENT 5Fi
6.2.2 TECHNICAL & FINANCIAL ASSISTANCE 59
6.2.3 PUBLIC FACILITIES 59 �
6.3 IMPLEMENTATION 61
7.0 HOUSING OPPORTUNITY 63 ,
7.1 OBJECTIVE 63
7.2 POLICIES 63
7.2.1 EMERGENCY HOUSING 63 '
7.2.2 DISCRIMINATION 64
7.2.3 HANDICAPPED HOUSENOLDS 65
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, SUMMARY
HOUSING SAI T PAUL
, 1980-1990
' The o ulati n rou a
p p g p t the age where new households are
formed is g wing and demand for housing in St. Paul is
' greater than the supply. Business and industrial
development 's creating a variety of new employment
opportunitie in the city. We expect both of these
, to continue hrough most of the 1980's. Therefore:
THE SUPPLY 0 HOUSING WILL BE EXPANpED IN THE CITY,
' PROVIDING 10 000 NEW UNITS THROUGH CONSTRUCTION OVER THE
NEXT 10 YEAR .
With a tight housing market, an expanding economy, and a
' large supply of fine houses in distinctive neighborhoods,
we clearly h ve an opportunity to ensure a balanced
population w th full use of our housing and neighborhood
' - facilities b families over the next ten years. There-
fore:
, IN NEW CONST UCTION, THE DEVELOPMENT OF ALTERNNTIVES TO
SINGLE FAMIL DETACHED HOMES WILL BE EMPHASIZED WITHIN
NEIGHBORHOOD THROUGHOUT THE CTTY SO THAT SMALLER HOUSE-
HOLDS WILL H VE OPPORTUNITIES TO REMAIN IN THEIR NEIGH-
, BORHOODS, AN EXISTING NOUSES WILL BE AVAILABLE TO
FAMILIES.
' Fuel costs a e a rapidly rising part of housing cost.
Energy efficiency will increasingly be a major consider-
ation for an househol� seeking a place to live. The
' progress St. Paul makes in improving energy efficiency
will largely determine the degree to which city housing
serves the n eds of St. Paul residents and remains
attractive t riew households. Therefore:
IENERGY EFFICI NT NEW CONS7RUCTION WILL BE REQUIRED;
, ENERGY RELATE IMPROVEMENT IN REHABILITA7ION WILL BE
EhiPHASIZED;
' A CONCERTED E FORT TO ACHIEVE SUBSTANTIAL IMpROVEMENT
IN THE ENERGY EFFICIENCY OF EXISTING HOMES IN ST. PAUL
NEIGHBORHOODS WILL BE MADE, AND
, INNOVATIVE EF ORTS TO REALIZE MAJOR REDUCTIONS IN THE
USE OF NON-RE EWABLE FUELS THROUGH THE APPLICATION OF
NEW TECHNOLOC TO OLDER HOMES WILL BE ENCOURAGED.
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Owning one's home remains a highly sought after goal '
in our society. Today, because of rapidly rising costs,
only about 1 out of 4 households can afford to buy a new
home. Rental costs have also mirrored the rise in home ,
ownership costs due in part to the tight rental housing
market. As a result affordable housing has become a
major concern for a large portion of St. Paul 's '
population. Therefore:
EXPANDING THE HOUSING SUPPLY FOR ALL INCOME LEVELS '
WiLL BE PURSUED.
ALTERNATIVE OWNERSHIP POSSIBILITIES WHICH MAKE IT POSSIBLE '
FOR N�DERATE INCOME HOUSEHOLDS TO PARTICIPATE IN SOME
FORM OF OWNERSHIP WILL BE CREATED.
PUBLIC AND PRIVATE FINANCING MECHANISMS WILL BE USED ,
TG IMPROVE THE ECONOMIC FEASIBILITY OF BUILDING AND
NWINTAINING RENTAL HOUSING WITH REASONABLE RENT LEVELS.
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While constru�tion of rental housing has slowed, some of
the rental housing supply is being lost through con- '
versions resulting in displacement of rental tenants.
Renter households displaced by conversions and rising
rent have serious trouble finding adequate housing when ,
there is so much competiiion in the rental housing
market. Therefore:
�UBLIC MEASURES WILL ENCOURAGE REHABILITATION OF RENTAL '
PROPERTIES (50 THAT CONVERSION IS NOT THE ONLY ALTERNATIVE) .
WHERE PUBLIC FINANCING IS USED, REGULATIONS WILL BE '
EMPLOYED TO ENSURE THAT RENT INCREASES ARE MINIMIZED.
Low and lower income hnus�holds remain a substantial '
purtion of St. Paul 's population. With continuing in-
�reases in housing costs relative to income and the con-
tinuing housing shortage, the needs of these lower ,
i►ieome households are going to expand rather than
d?minish. 7herefore:
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AVaILABLE ASSISTANCE RESOURCES WILL BE USED Ta LEVERAGE
AS MUCH AFFORDABLE HOUSING AS POSSIBLE TO MEE� THE '
NEEDS OF LOW AND LOWER INCOME HOUSEHOLDS= �
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' Most of the ouses and apartment buildin s in St.
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Paul were built before 1940. All over the city today,
, except in th newest neighborhoods, people are investing
time and mone in home improvement. We used to think
that �1d nei borhoods had to deteriorate and
could only be ome worse; that houses become obsolete
, after some 50 years; so we began to leave them behind
for new ones. We now know these assumptions to be
unfounded. T erefore:
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A MAJOR CON�NI MENT TO NEIGNBORHOOD REVITALIZATION WILL
' CONTINUE;
MORE ATTENTIO WILL BE GIVEN TO MAINTENANCE USING
- EDUCATIUNAL A D OTHER NEIGHBORHOOD PROGRAM MEASURES
, AND USING THE HOUSING CODE AND INSPECTION PROCESS MORE
EFFECTIVELY A A PREVENTIVE MEASURE AGAINST DETERIORATION.
, MEASURES WILL E SUPPORTED THAT GIVE RESIDENTS AT THE
NEIGHBORHOOD VEL INCREASED CAPACITY FOR OBSERVING,
UNDERSTANDING ND INFLUENCING CHANGES THAT ARE GOING
, ON IN THEIR HO SING SUPPLY.
A great deal o rehabilitation has been achieved in
, single family omes - an effort which must continue.
Rehabilitation of multi-unit properties has been harder
to achieve exc pt where major conversions are under-
, taken to serve an entirely new market. Therefore:
' REHABILITATION EFFORTS WILL CONTINUE, BUT MORE OF OUR
REHABILITATION RESOURCES WILL BE DIRECTED TO THE
IMPROVEMENT OF MULTI-UNIT STRUCTURES.
' Many groups which have limited access to suitable hous-
ing exist within the city. While in some cases progress
, has been made, e needs for lower income large families,
displaced hous olds and the handicapped remain.
Therefore:
' PROGRAM MEASURE WHICH PROVIDE REASONABLE ACCESS FOR ALL
RESIDENTS OF ST PAUL TO DECENT, DESIRABLE HOUSING IN A
' SUITABLE RESIDE TIAL ENVIRONMENT WILL BE PURSUED.
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' 1 .0 INTRODUCTION
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, l . l PURPUSE No resource in St. Paul is more important to the overall
character of the city and the well-beiny of residents
" than the quality of our housing and neighborhoods and
' the suitability of available housing to the needs of the
population. Over the last two decades , and particularly
the last 12 year$ , St. Paul residents , government and
' private institutions have invested he�vily in the restora-
tiori of housiny in St. Paul and the expansion uf housing
opportunities. A great deal has beer� accomplished.
' Relative to most large cities in the country, St. Paul
has sound housing, fine neighborhoods and housin� oppor-
tunities for households at all income levels. There
° are major challenges , however, for the 1980's :
' 1 .We don' t have �nough units tv meet the demand.
' 2.Many units req�ire rehabilitation or major maintenance.
(Th�is is not surprising, a5 over half of our housing
un�it5 are more tMan 50 years old. )
' 3�Huusing cost� are spiralling. Even if the market could
supply all the new or rehabilitated units we say we need,
the �ost woulcl t�� too high. Most St. Paul househulds
' could not afford the rent or a monthly purchase payment.
Resources and r.odls to meet the needs are limited but
' siynificant. 7he purpose of this plan is to provide
direction for tn� efforts uf city government, nei�hborhooJs ,
and other privat� and public actors ; to provide a policy
frarnework for yoWernment efforts to meet �urrent housing
' problems and anticipate future housiiig needs; to provide
private sector institutioris with an understanding of the
city's direction and the vital role they must play; and
' to �,rovide a fr•amework for neighborh�od and cit_y government
cvoperation.
' Ir� irie past, ;t. Paul has u�er•atecl �i�cier a variety of
loosely related h�ousiriy policy statements , inc:lud�ng the
Mayur�' s Agenda tor a Future St. Paul , the Residential
Impr�uvement Strategy, the Housing Assistance Pla�� , the
' Metropolitan Housing Guide, the Miyr•ati�n Committee
Repurt, the Ca�ital Allocation Policies, and the ITA Program
Co��c;ept and G�,i del i nes. 1-i�� Hous i ng F'ol i cy P1 an wi 11
' revise and int�grate thesr diverse ��ulicy elements into
a single polic:y framework. It is also intended to pro-
vide a basi5 for discussion and tu set the stage tor
' further defiriitio�� of housinq policy and implemeritati����
programs require�i under Minnesota':: rvletropol itar� ' and
�'�anninc� h�:t
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1 . 2 ORGA�VIZATION OF TNE Chapter 2 addresses the total supp y of housing in St. �
Pi.NN Paul . The policies in this chapter are concerned with
cfiariges in that supply over the next ten years, par- � '
ticularly how that supply should be expanded. Chapter 2
does not address the cost of housiny ur the incorne
range of househnlds to be served by fiuusing built in
the city. That is the subject of c�iapters 3 and 4, '
the first of which deals vvith "market rate" housing and
the need to serve a broad �income range in new housing
tu be built. Chapter 4 deals specifically with assistance '
for• lower income households.
Improvement of neighborhood quality is the subject of '
Chapter 5. Im�,rovemer�t measures addressed include the
rehabilitation of houses , the correction of deficiencies
resulting from inadequate �naintenar�ce �in the past or
mer�ely from aging. "Irnpr•aviny Maintenance," Chapter 6, '
addr°esses the continuing ��pkeep of neighborhaods and �.
hou�es, the preventive rneasures that help us avoid the
deterioration that results in rPhabilitation needs in '
later years. Chapter• 7 deals with obstacles that may
make attainment of suitable housiny particularly difficult �
for some groups. '
Each section of the plan concludes with an outline of •
major actions required for implerr�entation. A more
complete discussion of the actions required for implen�enta- '
ti ori over the next few year�s wi 11 a{,�ear i n the hous i ng �„
implementation p�lar�, a separate element of the
Comprehensive Plan yet to be completed. ,
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1 . 3 BACKGROUND The housing issues which St. Paul is currently faciny ��
and will be facing in the decade ahead, are influenced '
by �nany factors. Among tl�em are: -
NE6� HUUSEHULUS '
The children l,ur�n between 1948 and iy�l are the post tivar
"baby boom" yeneration. The proportion of the �ity' s �
pupulation 18-3u increaseu from 21% i:o 26% between I�JIU ,
and 1975. These households now swell the demand for
housing, just as the chil�ren incredsed school er�rollments - -
in earlier years, This in�reased drmand particularly ,
efrects the rPntal rnarket. Most new; young hc�u�eholds
1'rn1 , and thE��r .:re d11 ln�'�"�'•_i5111�� Ov���;;�rtion 11f �"IIP Clt'y'� C _
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HOUSEHOLD SIZE
Iri St. Paul ,as elsewhere in the nation, there is a trend
, toward smaller households. From 1950 to 1978 St. Paul 's
average household size decreased from 3.38 to 2.46 persons
per household. More coup7es are choosing to have fewer
children or are remaininy childless , the divorce rate is
, increasing and more people, both young and old, are
electing to live alone. 7he net result. . .more households
are being formed with fewer people living in each one.
INUMBER AND TYPE OF HOUSING UNITS
St. Paul in 1979 had an estimated 112,800 housing units,
' a 21% increase over the 1950 level of 93,359. In 1950
72� of the housing units were single family and 28% were
in multi unit structures. �y 1979; it is estimated this
proportion had shifted to 64% single f'amily and 36%
' multi unit.
CUNS7RUCTION AND DEMOLITIUN TRENUS
' Sirice 1970 an average �f 1 ,195 units were built each year,
buL the net yain in housing units f�as been only 678 per
year due to concurrent demolition efforts. The recession
' of 1973-1975 depressed St. Paul 's building industry.
Since then building activity has increased but is still
under 50 percent of pre - 1973 levels.
' RENTAL UNIT CONVERSION
St_ Paul , for the last three years has had a low vacancy
rate. There are shortac�es in the owner-occupied as well
� as the rental markets. One response of the owner-occupiea
market has been renewed interest iri "revitalizing" inner
city neighborhoods. This has also agyravated the problem
' of rental housiny. Historically, we have relied on our
older housiny stock to Nrovide housing foi° our lower
income households. Now wN are seeing the opposite effect
in neighborhoods like Summit-Uriiversity, where r�estora-
1 tiuri and condominium conversions are actually reducing
the supply of low cost huusiny.
' REuIONAL SUPf�LY
The shortage i� of particular concern to St. Paul which
has traditior�clly provided a large snare of the region' S
' 1aw and moderately priced housing. In 1970, 37�� of the
area's apartment units r°enting for under $100/rnonth WeY�e
located in St: Paul . Housing subsidies in both the cent:���
ci ti es and ti��e �uburbs may hel p some but are ;���ai 1 abl e
' �i+� �uch srnal l quanti ties that demand wi�!j ��at �e
�ignificantl,y reduced.
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ENERGY '
St. Paul , like all cities in ti7e natiori, is and will be
directly affected by rising eneryy costs and shortages of
nonrenewable energy sources. Housing in St. Paul , a city '
with a long, co�d winter, was built in an era uf
relatively inexpensive and abundant energy. The future
attractiveness of the city's housiny stock will be '
dependent upon findiny appropriate rn�asures to make our
ho�nes more eneryy efficient and capable of usiny renew-
ab?e energy sources.
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1.4 HOUSING GOALS Development and improvement underway in St. Paul and
continued prospects for reinvestment make the early 1980's ,
an important time of opportunity for steps to ensure good
housing and neighborhoods tor our future. The challenges,
to be sure, are great� Costs are r•ising r•apidly , available '
putjlic funds are diminishing, and Tne economy for resi-�
der,tial develu�n�ent nationally is ur�certain. ��untinued
progress will �nly be made with str•ategic use of available '
resources , and neighborhood/government and public/private
c�u�,eration towvard shared obje�tives.
Ob.iectives anc� policies are set out in this plan ta guide '
these efforts ±oward the followiny uoals:
A UNRIETY OF DESIRABLE HOUSING UPPUk�(UNITIES FOR HOUSEHOLDS ,
OF �VERY ECONUMIC LEVEL ANU EVERY AGE IN ST. PAUL PdEIGH-
BORHOODS, OPPORTUNITIES FUR THE ENTIKE WORK FORCE WNICN
THE CITY'S DEVELOPING ECOfJOMY RFFLECTS. �
NEIUHBORHOODS THROUGHOUT THE CTTY wH1CH PROVIDE A SOUNU,
NEI�L�HY ENVIRONMENT �Ok pEOPLE UF ALi AGES. '
FUL� UTILIZ�iIIU�V UF L�iNU, �UILUING� AiVD !'U�LIC; It�PRUVEMENTS
AfVL SERVI CE5 !�Ji� COS7-NNU--�NERGY-�I , �;:t ENT t I V i NG ,
UP�URTJNIT:E�-
REA�i)N�11iLE �l�i:: `�S !!� �Ul INkiLt, DEi:tiv�i HfuU SAFE �i�JUSIiV(::
F�'!; !-�1E!lY I��`.�':�.(VT OF �r. PAUL . ,
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' Z.0 HOUSING SUPPLY
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2.1 HOUSING SUPPLY OBJECTIVE 1
OBJECTIVE CONSTRUCT AT LEAST 10,000 NEW HOUSING UNITS IN ST. PAUL
' BY 1990.
A.EXPAND BOTH OWNERSHIP AND RENTAL OPPORTUNITIES
' B.INCREASE THE VARIETY OF HOUSING OPPORTUNITIES WITHIN
NEIGHBORHOODS.
' C. INCREASE RENTAL AND OWNERSHIP OPPORTUNITIES FOR LOWER
INCOME HOUSEHOLDS.
� New housing construction will play an important role in
shaping St. Paul ' s future. Today vacancy rates are low
� and new construction is underway to respond to the high
level of demand for housing. Continued expansion of the
housing supply over the next 10 years will be necessary
� in order to:
.Support the city's economic growth and job development
objectives through providing close-in housing opportuni-
, ties for new employees;
.Spread the property tax burden to limit its impact on
' individual households;
.Promote housing alternatives which reinforce the city's
, existing housing stock and neighborhoods;
.Promote full use of the metropolitan area's fully
developed area -- an important metropolitan objective;
1 .Stabilize the city' s population; and
, .Provide a response to demands for a more energy efficient
lifestyle. Improve energy efficiency by providing more
efficient units and increasing residence opportunities
� near employmer�t centers. . _
Between 1974 and 1979, 4,560 new housing units were con
structed in St. Paul . This averages 760 units a year.
1 Over the same time period, 1 ,779 units were demolished
for a net average gain of 463 units per year. By the
end of 1979 St. Paul 's total housing supply had reached
� an �stimated 112,800 units.
Despite this level of new housing construction, the
' housing market is tight in St. Pau� . Vacancy rates are
low. For the past two years vacancy rates have averaged
,5% for single-family and 4.2% for multiple fiamily units.
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A 1% rate for single-family and a 6% rate for multiple- ,
family units is generally consid�red necessary to pro-
vide a choice for households wishing to move.
Several factor°s have increased the demand for inner city '
housing. A major factor is the post-war "baby boom."
The children born between 1y48 and 1961 have now reached ,
the househo�d formatian stage and this group is swelling
the demand for housing. A second factor is the "back to
the city" trend. Metropolitan residents , faced with
higher energy and transportation costs , are looking t
at lower cost inner-city housing as an increasingly
attractive alternative.
St. Paul 's ability to respond tn this increased demand ,
through new housing construction depends on several things.
First is land. St. Paul has limited but signi�icant ,
land resources for housing construction. Based on a
January 1980 inventory, 755 acres of vacant, residentially
zoned land exists within the city limits. This vacant
land could accommodate 10,000 new units as currently �
zoned. Some of this land should not be developed because
of soil conditions ar�d topography. Further potential .
exists in converting non-residentially zoned land to '
residential use. In various parts of the city, primarily
Downtown and Midway, this is occurring. Demolition will
also contribute to the availability of residential con- '
struction sites. Hn estimated 1500 residential units
(70% single-family and duplex units) will be demolished
this decade.
Metropolitan growth is a second factor. St. Paul ' s housing '
market is part of a metropolitan market and, therefare,
affected by reyional housing growth trends. The '
P1etropolitan Council has estimated that between 1978 and
19�� an additior�al 220,000 units would be needed within
the rnetropolitan area to meet housing needs. Based on '
St.. Paul 's growth tr�ends , r•eplacement and vacancy rates,
the Metropolitan Council has estimated that S�. Paul
�hauld receive approximately 5°i of the area's total
growth over the next 10 years. This would mean an annual �
average of 1 ,090 new housing units per year or 10,900
new housiny units for the next decade. 1 ,090 units per
year could represent a 14;;, increase over the 19✓7 ,
S� Paul hous�+�� construction rate.
The rate at �hiih new construction can be achieved de-
pends heavi ly, uf course, on tt�e econorny and the ava�1- ,
ability of fi��anc�n�� for residential constructian, fac�ors
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p y the �nfluence of city pol�cies.
At the present time an objective of 10,000 units
' over the next decade appears particularly ambitious,
perhaps unrealistic, because of the depressed economy
for residential construction. If a major recession
' develops as predicted by many, the objective will not be
realized. Some, however, predict an easing of the
situation for housing construction over the next few
� years and a new peak in housing construction by 1985.
Given all of the unknowns that eff�ct this objective,
it is important that it be reevaluated at least every
three years.
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2.2 HOUSING SUPPLY POLICIES 2.2.1 HOUSING TYPE AND SIZE
' POLICY Sl
IN RESIDENTIAL CONSTRUCTION THE PROVISION OF ALTERNATIVES
� TO �INGLE FAMILY QETACHED HOMES WILL BE EMPHASIZED.
� A primary consideration in new housing construction is
the impact of new development on the use of existing
housing. New construction can result in increased
' turnover and more effective use of the city's existing
housing stock. In addition to the growing group of young,
newly-formed households, our large population of small
households without children includes many couples whose
' children have left home. Many of these, still occupying
houses built for larger families, would like to have
alternatives -- alternati�res for ownership with space
' that meets their needs in a more efficient manner; and
alternatives within their neighborhood that allow them
tr� remain where community ties are established. When a
� small household leaves a family house for a smaller town-
house, duplex unit or condominium, the family house
becomes available to a new household with children. Thus,
the objective of increasing the number and variety of
' smaller housing units in our neighborhoods is an
essential part of the strategy to ensure that city neigh--
borhoods are increasingly attractive to, and able to
� accommodate, families with children.
The smaller more cost-efficient units needed can be
� provided in various forms of "attached" or common wall
housing including duplexes, townhouses and multi-unit
buildings for owner occupancy. These alternative housiny
types have sev�ral advantages: 1 ) They cost less tu
� construct than comparable singl�-family detached units
and can therefpre make ownership possible for more hause-
holds. 2) They require less personal effort for maintenanc�
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and upkeep, and therefore are an attractive alternative �
for many households. 3) Such units are more energy
efficient than single-family homes primarily because they '
share common wallsy and in some cases, centralized
heating and cooling syst�nis. 4) New townhouse and condo-
mir�ium construction may relieve some of the pressure to
convert existing rental uriits ta condominiums, thus '
preserving the city's much r�eeded r~ental housing supply.
POL:ICY S2 !
CONSTRUCTION t�F SMALLER I � L & 3 BEDROOM OWfJERSHIP
HOUSING UNITS '�JILL BE ENCC�URAGED BY I-HE CITY. �
POLICY S3
�VITHIIV MOUEST COST AND LUWER-rNCOME CONSTRUCTION, THE ,
CITY WILL ENCOURAGE THE DEVELOPMENT OF FAMILY REIVTAL
UNITS IIVCLUDING THREE-BEDROOM AND LARGER U��ITS SUFFICIENT
TU MEET THE NEED FOR LARGE FAMILY NOIfSEHOLDS. �
Smaller hous�i�ulds are a growing portion of St. Paul 's
pop�ilation. In 1970, the average hausehold size was 2.98; �
in 1978 it had dropped �co 2.46 and the trend is expected
to continue to 1990. Ta�;e I , belovag i7lustrates the
im�,�ications ot the decr�ease in household size fior '
fut�are i�ousiny unit size.
fABLE I '
HOUtiING UNI�f SiZE DISTRI��JTION
� t�edrooms
0 1 2 3 4 5+�
St: Paul-1970 6. 5% ►b.5;o 32ro 20.5°�• 17.5°0 7%
SMS�-ly7U 5% :49� 31% 27% 19% 9%�
Pr�ujected Need 5% 30% :s4i� 23% 7°0 � 2l
iVew Uni ts '
The greatest projected nced is for one and two bedroom
units. Smaller hausehold� wishiny iu own smaller homes
ar�: faced wi ti; a 1 i mi ted ��hoi ce wi thi n the ci ty's exi sti n� �
hou5ing stock Potentia? sales units consist ��rimarily
of �inyle-faitn Iy homes designed �o n��et the 1dr•ger� house
ho l ii s i zes of previ ous years� Partly i n respor�se to tr�e �
demand f�r smaller sales units n�any one and twa bedroom
rental apartments P�ave been converted to condoniiniums ir�
recent yedrs. Whi �le ineetir�g ine market dernand for ,
smaller• vwnership un�ts , such �onversion� have the ur�for-
tunate cu►�sequence c,f reduci n�� the ci ty' s rental housi ng
supply.
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Although the number of large families needing larger
� units is relatively small , the urgency of the need is
significant. Rental housing for large low income families
is the most critical need at the present time because
of the shortage of larger rental uriits. Wh�le the
' first priority should be to meet large family needs in
the existing housing stock as much as possible, new
rental construction should include some large family
1 units because these units do not exist in older
buildings suitable for rental use.
Because the large family need is primarily an affordabil-
� ity problem it is addressed below under Housing Assistance.
' 2.2.2 LAND USE N�IGHBORH000 CHARACTER ��
' POLICY S4
EVERY NEW DEVELOPMENT WILL BE PLANNED ANU UESIGNED TO
ENHANCE AND COMPLEPqENT EXISTING NEIGNBORHOOD CHARACTER.
' NEW DEVELOPMENT SHOULD NOT SIMPLY ADD T0, BUT SNOULD
IMPROVE AND S7RENGTHEN WHAT EXISTS.
' POLICY S5
7HE CITY WILL tP�COURAGE A h10RE EFFICI�NT USE UF LAND
RESOURCES FOR IiOUSING DEVELOPMENT:
' A. IN LOWER DEN�ITY RESIDEiVTIAL AREASy DUPLEXES ANO
�N SOME CASES -fRIPLEXES SUITABLE FOK OWPiER OCCUPANCY
' SHOULD BE ENCOURAGED WHERE FEASIBLE ON SCATTERED VACANT
INFILL SITES.
B.MEDIUM DENSITY HOUSING CONSIS�IING OF TOWNH�USES, WALK-
' UP CONDOMINIUMS AND RENTAL APARTMENTS SHOULD BE DEVELUPEU
ON SITES ADJACENT TO NEIGHBORHOOD COMMERCINL AREAS, TRAFFIC
CORRIDORS AND ON LARGER VACAPJT OR UNDERUTILIZEU SITES WITHIN
� BUTH BUILT UP AND DEVELOPING CITY NEIGHBORHOUDS.
C.HIGH DENSITY HOUSING CONSISTING PRIMARILY OF ONE NNU
TWU BEDROOP� UNITS SHOULD �3E DEVELOPEU IN AN AKUUND
' THE UOWNTOWN ��REA, AND WITHIN OTfiFR HIGH DENS:��' ACTIVITY
CENTEFtS.
, POLICY S6
ESTABLISH N PR�CESS WHICH Wll� Pf��VIDr N MAJOR tZOLE �=UK
' RESIDEI�TS AT 7HE DISTRICT LEVF� lIV �LaNN�NG FOR THE
DEVELOPMENT OF NEW HOUSING.
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One of the most important values to homeowners in city ,
neighborhoods is the protection of neighborhood character.
The aspects of this character that are important include
the amount of open space, the scale and form of structures , '
density of the population, type ofi household and traffic
patterns. All of these car� be effected by the type of
new housing constructed where land is available� ,
Traditionally, the manner in which this protection of
existing neighborhood character is pursued in our
predominantly single-family neighborhoods is by in- �
sisting that a11 new development is in single family
homes similar to what already exists. Some of what has
been done in apartment development in the recent past, �
iri fact, confirms that alternatives can be highly detri-
mental to neighborhood character. Yet, St. Pau� neighbor-
hoocis provide plenty of testimony to the fact i:hat the ,
alternatives to single fai��ily homes rleeded to meet our
population needs can be entirely compatible with neigh-
borhood character which is predominantl.y single family.
Dupiexes and ir� some cases triplexes , properly 1
designed, can be highly compat7ble with most
low-density residential development in the city.
Likewise medium density townhouses , walk up apartments '
and condominiums placed adjacent to neighborhood
commercial centers and traffic corridors, if properly
designed, can be a compatible buffer between commercial '
and vehicular activity areas and lower density neighbor-
hoods.
HouSing alternatives other than the single family detached ,
home are needed, but whether they are developed and
have a positive impact on neighborhoods will
depend on the extent to which they are understood ,
and supported by residents. R�siderits, therefore,
through neighborhood and district c�rganizations should
he i N i denti fy t�ie opportuni ti e5 for� i7ew P��usi ny al ter- �
naiives within each neighborhood. Through a district
pldnniny process neighborhood arganizations and the city
snould establish satisfactory guidelines and quotas for
new housing �ievelopment. '
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2.i 3 ENERGY FFFICIENT HO�JSING '
PULICY S7 �
THE CITY WILL NC7IV�LY ENCOURAGE NEW HOUSING UEVELOPMENT
�fHNT PROMOTE� ENERGY CONSERVATION AND USE OF RENEWABLE
EPVE:I2GY RESOURCES.
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A.MAXIMUM FEASIBLE ENERGY EFFICIENCY WILL BE A PRIMARY
CRITERION IN CITY REVIEWS OF ANY RESIDENTIAL BUILDING
� PROPOSAL FOR WFlICH ANY FORM OF CITY ASSISTANCE IS
REQUESTED.
� B.TNOSE :NEW HOUSING DEVELOPMENTS THAT DEMOWSTRATE
INNOVATIVE ADVAPdCES IN ENERGY CONSERVATION AND USE OF
RENEWABLE EPJERGY RESOURCES WILL RECEIVE PRIORITY SUPPORT
� FROM THE CITY.
C.THE CITY'S ZONING AND HOUSING CODES WILL BE EXAMINED
AND UPDATED TO ENCOURAGE ENERGY EFFICIENT HOUSING
� DEVELOPMENT.
� St. Paul ' s Energy Committee of 10U+ has clearly identified
that new housing development, in the decade ahead, will
be heavily in�luenced by rising energy costs. New homes
' will cost even rnore as increasing energy costs drive up
the price of materials for new home construction. The
biggest impact, however, will be in terms of household
� energy consumption especially for winter heating needs.
For the current winter it is estimated fuel oil prices
will increase by 60%. With the rapid increase in fuel
bills that has and is predicted to occur, it is the
� Energy Committee's recommendation that the city provide
some leadership and direction in areas of energy
efficiency, conservation and renewable energy resources.
! The 10,000 new housing units to be canstructed over the
next decade represent an important opportunity to provide
energy efficier�t shelter. New construction will con-
� tribute to improved energy efficiency through a more
efficient land use pattern, providing greater opportunity
for liviny and working at locations that are not far
� apart. New construction can contribute to impruving
energy efficiency by emphasizing those types of housing
units which are inherently most efficient. Opp�rtunities
� for innovative construction ir7 which the use of non-
renewable fuel� is minimized can be identified and pursued.
� 2.2.4 CONVERSI�N OF EXISTING HOUSES �
� POLICY S8
CONVERSION OF LARGE SINGLE-FAMILY STRUCTURES 7U TWO-FAMILY
USE WILL B� ALLOWED ON A LIMITED �ASIS IN CITY NEIGH-
BORHOODS. CONVERSIONS WILL BE RESTRICTEU TO PREVEfVT
� ADVERSE IMPACT ON NEIGHBORHOOD CHARACTER OR EXTENSIVE
SUBDIVISION OF ABSENTEE-OWNED PROPERTIES.
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St. Paul 's tight housing market and its abundance of ,
large single-family homes has fostered a growing, and
in some cases, illegal practice of converting these �
structures to multiple tenant use. Conversions, if
conducted in a legal manner, have several advantages
for the city: First, they add to the city's housing
supply. Second, they provide smaller housing units ,
which match today's smaller household size. Third,
rising energy costs are an economic hardship for some.
owners and conversion allows the creation of smaller �
more energy efficient housing units. Fourth, conversion
in rnany cases results in needed rehabilitation of the
structure. Caution, however, must govern future �
conversion activity. First, an available supply of large
homes for large families must be maintained to ensure
a family oriented character for St. Paul 's neighborhoods.
Second, conversions should occur on a limited basis in `
most neighborhoods to avoid concentration and disruption
of neighborhood character. The implications r�f ordinance
changes to allow greater density in new construction �
have to be r.�nsidered along with c�nversion possibili�:i�s _
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' . H USING U h�s rr� �eme tat on sect�on ent f es t ose u c act ons
IMPLEMENTATION nece�sary to support the private market development of
' 10,000 new h using units in the manner outlined by
the policy f amework. � These actions are not intended to
replace th� r�vate sector as the primary agent for
; haustng d�velopment. Rathery they are intended to identify
the city',s r 1� in guiding and shaping the private market
response td St. Paul 's housing needs. As illus�rated in
� Tablp 4, thes�e actions consist of:
' 1.Exp�nsion o the city's housing development activities
-, and capabiiit�es.
' 2.Modificatio� of zoning, housing and building codes to
encourage con�truction of alternative housing types.
� 3.Creation wi�hin the district planning process a means
for,site sele�tion and developrr�nt of housing alternatives.
' ?he implicati ns of these actions are significan�. Con-
structing 10, OO housing units (Table 2) will result
in a net gain of 8,500 units. This assumes 1 ,500 housing
� uni�s�will be derrrolished during the same period. By 1990
the city's to�al housing supply should be approximately
121 ,300 units. Reflecting the plan's emphasis on
,` smaller units �the greatest net gain will occur� in multi-
unit structure�s, that is, townhouse, rental and condominium
apartments containing four or more units in a single
• structure. Th single-family,, duplex and triplex supply
' will only inc ase by a net 450 units compared ta the
8,050 unit inc ease in multi unit structures.
' Most� housing c�nstruction (Table 3) will be occurring
in ma�or devel�pment sites. Twenty-eight percent, all
multi-unit, wi 1 occur in Downtown, primarily the
Lowertown area Thirteen and a half percent, again all
� � multi-unit, is�projected to occur in and around four
community shop�ing centers, e.y. Sun-Ray. The
greatest amoun of new housing, thirty-two and a half
� percent, will ccur in development sites converted from
non-residentia use, e.g. energy park. Approximately
twenty-six per�ent of new housing units will be developed
�' on vacant infi 1 sites scattered throughout the city.
Most of this i fill development, fifty-eight percent,
will consist o single-family detached homes and
duplexes. The �remainder will consist of townhouses, anci
� walk-up apartm�nts and condominiums.
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TABLE 2 ,
HOUSING DEVELOPMENT: SUPPLY
,
1980-1990 1980-1990
1980 New Units Demolition 1990 '
1 & 2 Units 71 ,500 1 ,500 1 ,050 71 ,950
Multi-Units 41 ,300 8,500 450 49,350 '
TOTAL 112,800 10,000 1 ,500 121 ,300
,
TABLE 3
HOUSING DE E PM T• �
V LO EN . LOCATION POSSIBILITIES
4 or More Unit '
Structures :
1 , 2, & 3 Unit Apartments , '
Structures Townhouses, etc.
Downtown -- ?.800 '
Community Commercial Centers -- 1350
New Development Sites -- 325U '
Scattered Site 1nfi11 1500 1100
TOTAL : I 5011 85UU '
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1 1 . ADDING TO THE SUPPLY TABLE
� Implementation Action (New and Existing)i Responsibility Funding Source
� I
1 . Expand housing development program withil� PED: Operating Budge
PED. Planning, (PED)
� , Renewal ,
a. Monitor market analyses and secure Comnunity Devel-
additional studies as necessary. ! opment Divisions
� b. Update vacant and underutilized lan�
inventories.
� c. Promote development of privately owr�ed
land.
d. Continue to monitor and refine proglam
� guidelines for city assisted develo�ment.
� e. Continue to market publicly owned l�nd.
� �
� f. Assist developers through city perm�t
and developer process. ,
1 . Coordinate private and publjc finan�ial
9
assistance and develop public resou�ces
ifor support of residential developm�nt.
h. Coordinate capital improvements wit�
� neighborhood revitalization. ,
2. Analyze and amend city zoning and housiing PED: Operating Budge
� codes to permit: ' Planning and (PED and CSU)
; Department of
a. Innovative housing types. Comnunity Ser,
' vices - Housing
b. Greater energy efficiency and consHrva- & Building Code
; tion standards. Enforcement
; Division
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I. ADDING TO THE SUPPLY CONTINUED �
Implementation Action (New and Existing) Responsibility Funding Source �
3. Increase district council participation PED: Operating Budge �
in neighborhood housing planning: Planning, (PED)
Community Devel-
a. Develop and carry out process involving opment Di�is9ons & �
district planning comnittees in identi- District Councils
fication of housing development
opportunities. �
4. Implement new construction energy guidelines PED: Operating Budge `
agreed upon with conclusion of Energy Renewal Division & (PED, Energy
. Comnittee's work. Energy Office Office) ,
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5. Identify priorities for Section 8 PED: � Operating Budge �
new development. Planning, (PED)
Renewal Divisions &
District Councils �
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I3.0 AFFORDABLE HOUSING
�
� ran e of desirable housing
If the goal of providing a g
opportunities for households of all income levels is to
� be realized, housing at a wide range of prices must be
available in existing, rehabilitated, and
newly built houses.
� Since the 1950's, much of the concern for housing in the
central city has been direct�d to the need to attract or
retain the higher income households leaving the city for
� newer opportunities in suburban communities. That concern
remains an important one. To provide for the diverse
corranunity that the city's economy requires and can
� support, it is essential to continue to ensure that
neighborhoods within the city offer a wide range of
desirable choices for middle and higher income households.
, The reinvestment climate today, however, is much different
than it was a few years ago. In some cases, renovation
efforts, combined with new recognition of the benefits
1 of city neighborhoods, have transformed city housing
resources into opportunities for higher income households
only. In addition, the costs of new construction mean
� that most housing built is either for high income house-
holds or provided with government subsidy and available
only to the lowest income households. In addition,
housing costs generally have risen faster than incomes
, over the last several years.
For all of these reasons "affordability" becomes a major
� concern for a very large portion of St. Paul 's population.
The primary subject of this chapter of the Plan is the
cost or affordability of "market rate" housing. The
next chapter addresses public subsidies used specifically
� to help meet the housing costs of lower income households.
� 3. 1 AFFORDABLE HOUSING OBJECTIVE
OBJECTIVES EXPAND HOUSING OPPORTUNITIES IN CITY NEIGHBORHOODS FOR
HOUSEHOLOS OF ALL INCOME LEVELS
� A.RETAIN MODEST COST OWNERSHIP OPPORTUNITIES IN THE
EXISTING SUPPLY AND PROVIDE THAT A MAJOR PORTION OF NEW
OWNERSHIP UNITS WILL BE AFFORDABLE TO MODERATE INCOME
� HOUSEHOLDS.
B.PRESERVE EXISTING RENTAL HOUSING AND EXPAND RENTAL AS
� WELL AS OWNERSHIP OPPORTUNITIES IN NEW CONSTRUCTION.
C.ENSURE THAT � MAJOR PORTION OF RENTAL UNITS CONSTRUCTED
� ARE AFFORDABLE TO MODERATE INCOME HOUSEHOLDS. (NOT
INCLUDING UNI�S ASSISTED FOR LOWER INCOME HOUSEHOLDS. )
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D.SUPPORT CONTINUED EXPANSION OF DIVERSE HOUSING �
OPPORTUNITIES FOR MIDDLE AND HIGHER INCOME HOUSEHOLDS,
PARTICULARLY IN THOSE NEIGHBORHOODS WHERE DISPLACEMENT
IS NOT A PROBLEM. �
Table 5 is an approximate breakdown of income levels �
and the subsequent range of affordable housing costs.
These figures are based on the 1979 seven-county metropolitan
area median income figure for a family of four, which is �
$21 ,000. The "very low income" level refers to families
with a yearly income that is less than 50� of this median
figure. The "lower income" range is 50-80� of the median �
and families with an annual income of 80-110% of the median
are described as "moderate income." "Affordable housing
�cost," by definition, is based on the traditional standard �
that one-fourth of total income is the maximum that should
be required to obtain adequate housing.
"Middle and higher income" is used in a general way to �
refer to households with incomes higher than these
classifications.
TABLE 5 �
979 Affordable �
Category Income Housing Costs
Ver Low Income $ 0-$10,500 $ 0-$219 Monthl �
Lower Income $10,500-$16,800 $219- 350 Monthl �
Moderate Income $16,800-$23,000 $350-$479 Monthl
.2 AFFORDABLE HOUSING 3.2.1 AFFORDABLE RENTAL HOUSING �
POLICIES
POLICY Al '
DETERIORATED RENTAL HOUSING IN THE CITY SHOULD BE REHABIL-
ITATED WITH THE USE OF SUBSIDIES AND REGULATIONS AS �
NECESSARY TO ENSURE THAT RENT INCREASES AND DISPLACEMENT
ARE MINIMIZED. (SEE ADDITIONAL POLICIES UNDER
REHABILITATIOIV. )
�
POLICY A2
DEMOLITION OF OCCUPIED RENTAL UNITS MUST BE LIMITED AND �
TEMPERED BY THE AVAILABILITY OF ALTERNATIVE HOUSING FOR
THOSE OCCUPANTS.
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� POLICY A3
THE CITY SHOULD SUPPORT DEVELOPMENT OF RENTAL HOUSING IN
� APPROPRIATE LOCATIONS. A BALANCE SHOULD BE REALIZED IN
NEW DEVELOPMENT BETWEEN CREATION OF NEW OWNERSHIP
OPPORTUNITIES AND CONTINUED RENTAL DEVELOPMENT AT LEAST
SUFFICIENT TO REPLACE LOST UNITS AND TO MAKE EFFECTIVE
� USE OF AVAILABLE SUBSIDY RESOURCES.
� Lower income households dependent upon rental housing face
the most severe problems in the current housing shortage.
About 47% of St. Paul households are renters and at the
� time of the 1970 census, 40% of all St. Paul renters were
earning less than $5,000 per year. Eighty-six percent of
these low income renters were paying more than 25% of their
income for rent. While, by income guidelines, half of
� St. Paul 's population is eligible for subsidized housing,
about 8% of the housing units in the city now have some
subsidy for lower income households. While the eligible
� ir�c:ome range is broad, the short supply of available sub-
sidy is badly needed for the lowest income households.
Most of the moderate income need must be met in private,
� unsubsidized �;nits.
The current iiicrease of small , young adult households in
the city's population has greatly increased the competi-
tion for available rental units. This makes access to
decent housing more and more difficult for lower income
households. Not only do rents increase and available units
decrease, but �wners in a tight market can afford to be
more selective, serving the market they choose to serve.
� While rent levels have increased, rising expenses for
property maintenance and management have made it
difficult for owners to c:ontinue to market and manage
rental units successfully and realize a reasonable
� return. In this climate the cor�tinued provision of
rental housiny affordable to St. Paul households is a
serious challenge.
� 4
POLICY A
THE CITY WILL SUPPO�T REASONABLE MEASURES TO PROVIDE
� GREATER INCEN�(IVES FOR THE CONSTRUCTION AND ADEQUATE
MAINTENANCE OF 12ENTAL HOUSING THROUGH TAX POLICIES,
� Public policy at state and federal levels, particularly
tax policy, is heavily weighted in favor of �iome owners.
� Mnst of the housing subsidy in this country is in the
_1y_
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form of tax deductions for homeowners. While Minnesota �
has provided some relief for renting households with the
"circuit breaker" tax rebate, the overwhelming bias of
the whole tax system toward home ownership appears to be �
a major factor in the poor outlook for rental housing
today.
3 .2.2 DISPLACEMENT= & COOPERATIVE CONVERSION �
POLICY A5 �
PARTICULARLY IN THOSE AREAS WHERE DISPLACEMENT IS IDENTI-
FIED AS A PROBLEM, SUBSIDY RESOURCES, SUCH AS SECTION 8, �
SHOULD BE USED IN CONJUNCTION WITH REHABILITATION TO
PREVENT DISPLACEMENT WHERE POSSIBLE, AND TO MITIGATE TNE
ADVERSE EFFECTS OF DISPLACEMENT WHICH DOES OCCUR.
�
POLICY A6
POTENTIAL DISPLACEMENT IMPACT, THE POSSIBILITIES FOR �
MITIGATING DISPLACEMENT, AND AVAILABLE ALTERNATIVE
HOUSING ARE IMPORTANT CONSIDERATIONS FOR THE CITY IN
PRIVATE REDEVELOPMENT OR CONVERSION ACTIVITY WH�RE ANY �
FORM OF PUBLIC ASSISTANCE FOR DEVELOPMENT IS REQUESTED.
POLICY A7
THE CITY WILL CONTINUE TO PROVIDE ADVICE AND ASSISTANCE
THROUGH THE HOUSING INFORMATIO�J OFFICE WHERE PRIVATE
ACTIONS CAUSE UISPLNCEMENT.:
POLI�;Y A8
THE CITY WILL CONTINUE TO PROVIDE RELOCATION ASSISTANCE �
IN THE CASE OF ANY DISPLACEMENT CAUSECI BY PUBLIC ACTION,
UNDER THE PROVISIONS OF 7HE UNIFORM ItELC1CATI0N ACT.
�
"Displacement" is an issue raised in most every discussion
of housing policy for the city in recent months. In one �
sense displacement refers to any involuntary move. Some
of tF7e displacement problem under this definition is dealt
with in the discussion of emergency housing needs. Most
ofter7 today, cuncerns about displacement center~ around �
the displacemer�t of households by hiyher� income households
as a result of improvement �?f cor�ver,ion activ'ty, or
simply rising costsa �
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Displacement �an be an individual prnblem for an
individual ho�sehold but it has larger neighborhood
dimensions wh�n it refers to the gradual replacement of
� one social gr�up with another as a result of extensive
improvement and change in property value. In this sense,
displacement �as, to date, been identified as a signifi-
� cant corr�nunit�y issue in the Summit-University area of
St. Paul (Dis�trict 8) and may be a significant factor
� in some other areas.
Some degree of displacement has always been, and always
will be, a part of the ongoing process of development
� and change ir� the city's housing stock and the city's
physical plar�t. Today it is a problem in ways that it
has not been ; in the past particularly because of its
� , neighborhood impact and because of the shortage of
affordable alternative housing for the households most
subject to d�splacement. Policies in this plan which
relate to ex arision of the housing supply, expansion
� of the modes� cost housing supply, protection �f rental
housing, and! the provision of emergency housing are the
most important responses to many of the problems
� associated w�hth displacement.
A study undejrway within the Planning Division of the
� Department q'f Planning and Economic Development will
provide addiit7onal information about the nature and
dimensions df �.�isplacement in St. f�aul today.
� P�LICY A9 '
THE CITY MU�T SEE THAT THE PACE OF REDEVELOPMENT, CON- �
VERSION AND IMPROVEMENT ACTIVITY IS GOVERNED IN PART BY
� THE DEMONST�ATED AVAILABILITY OF SFI7ISFACTORY ALTERNATIVE
HOUSING WHEREUER DISPLACEMENT IS A FACTOR.
�
POLICY A10
THE CITY WILL MONITOR ONGOING CONDOMINIUM & COOPERATIVE
� CONVERSIONS �;LOSELY AND GIVE SERIOUS COP�SIDERATION TO
CONTROLS WHICH MAY BE NECESSARY TU F�(20TECT REN7E12 HOUSE-
HOLDS AND THE RENTAL HOUSING SUPPLY.
�
Rental units have been lc,st over the last few �ears
� through conver°sions. Units have been lost as older
houses , once subdivided into apartments have beer�
"deconvert�d"` by new owners restoring them for single
family hou$es. And rental units hav� been lost as
� owners converted from rental apartments to condominiun�s.
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� "`�'uKt REPORTS-...y�•"[ �u MONITOR
LENDING IVEEDS pFAND Wj�� p MORTGqGE LENDING pjs_
�IrY NEIG BORHOODS FOR Tr�NS
� REINVESTMENT ACT Fj��s �F THE
OF 7'HE HE COMMUNITY ica4
LENDING INSTITUTIONS,
-�:�- ng.
may
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the ori gi nal i nve���,....._ oves
in, membership is basically trans,C� ,.._ 1
� selling price. With available federal funding, tn��
original �ntry price inay be in the $300-$500 range.
� _25�.
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� pisclosure �
.. __u„« nassed the Home Mort9a9e �^rpl
_..�or�;sed banks and �
s
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Although the monetary cost ofi cooperative living is rela-
tively low, the amount of time required to organize the �
members into an effective, workable management system
may be great, especially if previous business and manage-
ment experiences are limited. Implicit in cooperative �
ownership is a sincere commitment to cooperating with the
other members. These additional factors involved
in cooperative living should be considered before
conversion is attempted. Since these factors are critica' �
to the success of a cooperative, this form of ownership
inay not be a practical alternative fnr �nany households
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� 3.3 AFFORDABLE HOUSING I
IMPLEMENTATION
ITABLE '6 _____
IImplementation Action (New and Existing) I� Responsibility Funding Source
�
� 1. Identify, develop resource and incentive � PED: Municipal Bond
measures to promote development of affor�able Planning & Funding; Feder- �
rental and ownership housing. , Renewal Divisions al , State, �
� Local Funding;
Private Lending �
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2. Maintain and implement program guideline� PED: Operating Budget �
� � in city's new development and rehabilita#ion Renewal & (PEO)
� � efforts to prevent adverse �impacts upon Pianning Divisions
Iminorities, disadvantaged and lower incor�e
families. '
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�- 3. Continue to work with state and federa7 City' s Operating Budget �
officials in the development of housing I Legislative (Mayor's Office) �
programs and resources whici� increase Liaison
housing opportunities. �
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� � 4. Maintain resource and referral informatidn I Huusing Operating Buaget
i
on cooperative housing. , i Ir�furrnatior� (Mayor's Office} i
�lffice �
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� �.._ _ �- ._____ _ _ __)
5. Explore the inclusion of cooperatives i�� PED: Federal , State, i
� city-assisted multi-unit development. Fla m�ii�y & and Local ;
, Ren�wai Divi�ions Funding; Tax �
� � Inc:rement &
� � ; I Bond Fi nanci r�y;
j Pri vate Lend+t�+_� �
' � ?nstitution� I
�
' ! �
� ,
� ��__._._.___ __.___----__�_ _�------ - _ �
� I
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� 4.0 HOUSING ASSISTANCE
�
� Ever since the passage of the first National Housing Act
of 1934, gove�nment has assumed some responsibility for
assuring that housing is made available to households
� not adequately served as a matter of course by the
private market. The public responsibi1ity is well es-
tablished in St. Paul today. With continuing increases
� in housing costs relative to income, that public role
is going to expand rather than diminish, unless the
fundamental goal of decent housing for all citizens is to
be abandoned.
� Virtually every household in the city benefits from
some form of public subsidy to assist with housing costs
� and most public subsidy is not targeted to lower income
households. Subsidy comes in such forms as tax deductions
for homeowners and depreciation write-offs for developers
-of rental housing. "Assisted housing" in this discussion,
� or "subsidized housing" or "lower income housing" as
defined by the Metropolitan Council , refers specifically
to special public subsidy intended to reduce the cost of
housing for lower income households.
� .1 OBJECTIVES FOR OBJECTIVE �
HOUSING ASSISTANCE ENSURE THAT ADDITIONAL HOUSING ASSISTANCE IS MADE AVAIL-
ABLE TO MEET THE NEEDS OF LOWER INCOME HOUSEHOLDS IN
- ST. PAUL.
A.USE ALL ASSISTANCE RESOURCES AVAILABLE TO THE CITY WITH-
IN THE METROPOLITAN AND HUD ALLOCATIONS
B.USE ASSISTANCE EFFECTIVELY TO LEVERAGE A MAXIMUM AMOUNT
OF AFFORDABLE HOUSING
�
4.2 POLICIES: HOUSING 4.2.1 ASSISTANCE FOR LOWER INCOME HOUSEHOLDS
ASSISTANCE
POLICY C-1
CONTINUE TO WORK WITH THE METROPOLITAN COUNCIL AND WITH
OTHER COMMUNITIES TO ENSURE THAT GUIDELINES FOR THE USE OF
HOUSING ASSISTANCE ADEQUATELY REFLECT THE NEEDS OF ST. PAUL
HOUSEHOLDS.
POLICY C-2
WORK FOR INCREASED FEDERAL HOUSING ASSISTANCE FUNDS FOR
THE METROPOLITAN AREA.
Under the provision of current federal legislation govern-
ing housing ass�istance programs, the responsibility for
assessment of lower income housing need for all communities
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in the region is assigned to the Metropolitan Council . �
The distribution of housing assistance throughout the
metropolitan region is also determined by the Metropolitan �
Council under its Housing Allocation Plan. Housing is
provided through a market system that has little relation-
ship to city limits and is more regivnal in character than
municipal . Housing problerns and so1utions are to a large �
degree metropolitan problerns and solutions, and for these
reasons the City of St. Paul has �upported the developing
Metropolitan Council role in housing assistance policy. �
One Metropolitan Council policy which has been implemented
with some success is dispersal of low income housing �
opportunities throughout the Metropolitan region. Due in
large part to the policies nf the Metropolitan Allocation
Plan, 63% of the subsidized housing in the metropolitan area
is iri the central cities of St. Paul and Minneapolis today �
as opposed to 90% in 1971 . In St. Paul , nevertheless,
8% of the housing units, or 1 out of every 12, has some
assistance for lower income households.
According to income guidelines , about half of St. Paul 's
population is eligible for° subsidiz�d housing. 7he in- �
come limit for Section 8 subsi�ized housing is 80% of
the SMSA median income, which is currently $16,800 for
a farni ly of four.
The Metropolitan Council estimates that 18,775 lower in-
come households in St. Paul are in need of housing assistance.
Since housing assistance progr�ms , for the most part, do
not allow for any assistar�ce to single individuals unless
they are elderly, handicapped, or displaced, only the level
of family and elderly �eed is used in the allocation of �
housing assistance funds. The elderly need is estimated
tc, k�e 6051 households and the family need is estimated at
5723 households, for a tatal hausir�y assistance need of
11 ,774 households.
ESTIMATED HOUSTNG ASSISTAt�CE NEEDS �F ST� PAUL - TA�Lk 7
% of Total �
�e of Househald Metro Area Need
El derly 6,05�i
Fam11y 5,723
11 ,774 Total for Fund Nllocations 21
Single 7,001
1�,775 Tota� Households 18
-2�-
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` A more immediate indication of housing assistance need
in the city is the demand as it is experienced by the
Public Housing Agency. Early in 1979 that agency had
� 250 new certificates for Section 8 assistance available.
Applications were taken for only one day before the
' list was long enough to make any further applications
futile. Since applications for public housing are taken
f continuously, the waiting list figures are indicative
of the increase in housing demand over the past two
years.
1 TABLE 8
WAITING LIST FOR PUBLIC HOUSING
Elderly Non-Elderly
December, 1977 128 97
- December, 1978 200 194
December, 1979 290 253
The waiting list figures reflect additional housing
assistance needs that may not be adequately recognized
in the Metrvpolitan Council ' s estimates.
As of September 1 , 1979 it was estimated by the various
volunteer agencies and Indochinese self help groups that
there are 1 ,280 Vietnamese, Cambodian and Laotian refugees
in St. Paul , which is approximately 256 households. These
figures indicate that of the total number of Indochinese
refugees who have resettled in Hennepin and Ramsey Counties ,
32% are residing in St. Paul and 19q are residing in
Minneapolis. The State Department of Public Welfare
anticipates that this population will double within the
next few years.
Various federal and state Indochinese assistance programs
� are currently in existence. However, no funding is
specifically earmarked for housing. Thus , the gap
between housing supply and household demand is increased
within St. Paul in part because of the needs of households
� new to the City's population.
In the allocation of responsibility for lower income housing,
� Metropolitan Council policies require St. Paul to plan for
provjding a minimum of 4,900 housing units over the next
ten years, with the allowable range extending to 12,000
1 units.
I
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�
�
t aPP����t�on is futile•
waiting �ists
are so lon9 tha �
� pSSISTANCE P�RIIAN p EA
7 KE RENT A MES R� `
POtICY �' TS T� � THRO�GH�UT THE
SUPPORT EFFOR uSAgLE d in
UNITS �ssue r
EXISTING its certificates The m05t
� ex�stin9 un t commun�ty• location
For the mp5 n on1Y be us ou�d be take Wo�d be t0 tho t
on� �ity ca Step that � olds area W�
househ erever
Sq gni f i cant 1 ower �ncome Where w�th���th 1 east wh
choice for usable -�he usefu�ness
a� boundaries ��r es
certif�cates e prOgram �S operated� ' is sometim .�n
regard to municip households the market
tan� certain . units �n;b����y in the
any assis to availab�eater f�ex area
of certificates�ack of olitan
the A�lowin9 t the metroP� een suPp�Y
1im�ted by un�ty• throughou betW en�y has
a gi ven c0� r an easi er accorr�nodat�on etropol i tan
use of certificates }ic Nousin9 o her m eX�stin9
Wou�d marid fo.�he 5 nto an� greemen uP�oh 5% °firimenta� bas�s
and de tered � of
recen�es to a��ow amori9 a9 n ies on an expe
une t certi f�cates
I$TASTRUCTION
NO Ep IN NEW CON
pOLi�OR ORSION OF AVAILAgLE u
A �J NT� WIL� CONT IN�1E T� BE �t �s
pERCE market� a
rental housing assistanCe �units•
of the t�ght hous�n9 affordable
City use Supp�y of
Because t that the d �ndustr�a�
�mporthat W��� �ncrease the �
of muni��Pa� an development�
way the importanfor rent�� ho�eg}g�ative�ike�y
Because of financing �
b0n� d �pen o f g u h de n o�i n a 1 uxu�'un,ts wi th �
and the n aon �he use
tal hous�n9 n of some ords,
Strict�o �n�1usion In othe tal
t very �ittle ren W�thoU e househo�ds' dable ren �
thd b� built istance
c7ass wil� for lower incom of aff°of housing ass
ansi0n the use lt 15 �mperativ��
ass�stW��� be 1ittle e;n�olve
there that does not For this reason
in �•aaY• ailab�� a'�s�stan�e �e �se �
funds g n S�me av
ma,jor P�rtion of
supP°� neW construction•
�
�
.�33-
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�
� POLICY C-9
ALLOCATE GOALS FOR �dEW HOUSING ASSISTANCE TO UISTRICTS
� ON THE BASIS OF DISTRICT NEED, CITYWIDE NEED, AND
POTENTIAL WITHIN EACH DISTRICT FOR NEW CONSTRUCTION
AfJD MULTI-UNI7 REHABILITATION.
� If housing assi5tance is going to be used effectively in
new c�;nstruction it will have to be in development which
� is consistent with district planning. Neighborhood
residents must have a role in the process leading to
deve±opment decisions for neighborhood sites and a role
� in dete� mining how lower income housing needs can best
be met in each district. At the same time city govern-
ment must be clear about the overall need to be met and
ti�e intention to see that desirable housing is available
� fur all city residents to the extent that avaiiable
resources will allow.
� The district planning process for housing develc�pment
discussed in Cr�apter 2 w711 provide a rnajor role for dis-
trict residents in plannirry for new housing including housing
� for lower• income households. A city-wide a�location
of development potential would include specificatior�
of lower-inco�ne haus�ing Lu be planned for in each
district. Districts should be represented in the
process to develop the allucation plan.
POLICY C- IU
BOTH SUBSTANTIAL ANU MODEKATE REHABILITATION WILL QE USED
AS A MEAtJS OF MAINTAINING LOWER INCOME HOUSING UNITS IN
� AREAS UNDERGOING REHAf3ILI1ATI0N AND AS AN AID TO NEIGHQOR-
HOOD REVITALIZA7ION.
� POLICY C-11
� PROVIDE ASSIS�CWNCE THROUGH SUBSTANTIFIL AND MODERATE
REHABILI7NTIUN TU THE EXTEfdT THHT UPPORTUNITIES CAN BE
� DEVELOPED.
� Housing assistance currently available (the Sec:tion 8
program) can be used for rehabilitat-ion under two programs:
"substantial rehabilitation" and "moderate rehabilitation. "
To date, the substantial rehabilitation prograr�� has not
� been very effective in mosi cities , largely because of thr
high cost of r•ehabilitatiori. In St. Paul this form ot
assistance has been used only fior 12 units to date. In
� the Housiny Nssistance Pld��, tne city has always allocated
some ofi the available resources f�r substantial rehabili-
tation, because of the extensive multi-unit rehabilitatior�
� -i4-
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needs in the city and the need to ensure that some of �
the rehabilitated housing is accessible to lower income
households. Rehabilitatior� needs exist in areas of �
the city where private reirrvestment is causing dis-
placement and the use of subsidies for rehabilitation
wc�uld represent one means of maintaining rental units
for lower income households. �
The use of substantial rehabilitatior� housing assistance
for conversion of non-residential space is desirable where �
appropriate and in particular is intended for the
Lowertown Neighborhood Strategy Area.
The moderate rehabilitation program makes assistance �
available for buildings where only minimal rehabilitation
is necessary. Plans are currently being developed for
a moderate rehabilitation program which will be administereu �
in �t. Paul by the Public Nousing Agency and targeted
to the Summit-University area to hel� provide lower income
housing resources where displacement is occurring, and �
to the Identified Treatment Areas tn help in the stimu-
lation of neighborhood revitalization.
.2.3 LOCATION OF HSSISTED�HOUSING �� �
POLICY C-12
SUPPORT SPATIAL DECONCENTRATION OF HOUSING OPPORTUNITIES
WITHIN BOTH THE REGION AND THE CITY ITSELF. GIVE HIGHEST
PRIORITY TO THE LOCATION OF ASSISTED HOUSING IN THOSE
CENSUS TRACTS WITH THE FEWEST LOW INCOME HOUSING
OPPORTUNITIES. �
Feder�al and metropolitan policies ernphasiz� locating
subsidized housing where it will i►i�rease locational �
choice for lower incorne households and not lead to a
concentration uf housing opportunities in a few areas
of the city. A location plan which is part of the �
city's Housiny Assistance Plan establishes priorities by
census tracts for t e ocation of family and elderly
housing on the basis of the current distribution of sub- �
sidized housinq. Areas which prese��tly have few assisted
housing opporiunities are given the iiighest priority
for the construction, rehabilitatior� ��r acquisition of
additional S;�bsidized housing units . �
'
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� ��
�
� POLICY C-12
USE SECTION 8 RESOURCES WHERE APPROPRIATE TO MAINTAIN
� HOUSING OPPORTUNITIES FOR LOWER INCOME HOUSEHOLDS IN
AREAS WHERE DISPLACEMENT IS OCCURRING.
� Increased locational choice cannot be the only objective
governing the location of new assisted housing. It is
recognized that there is a need for subsidies in areas
� with large number of low income households where re-
investment may be causing displacement. Subsidized
housing is one of the most important tools available to
help alleviate the problems caused by displacement. By
� locating additional subsidized housing in transitional
neighborhoods, the city can help displaced families stay
in their community.
�
� 4.2.4 ECONOMIC MIX �
� POLICY C-13
A MIX OF MARKET RATE AND ASSISTED UNITS IN FAMILY DEVELOP-
MENT IS ENCOURAGED. PROPOSALS FOR FAMILY DEVELOPMENT WITH
A 20% ASSISTED/80% MARKET-RATE MIX WILL CONTINUE TO BE
� CONSIDERED HIGH PRIORITY, HOWEVER
� POLICY C-14
IN ORDER TO PROVIDE ENOUGH UNITS OF HOUSIPJG, FAMILY
ASSISTANCE MAY BE PROVIDED IN ALL-ASSISTED NEW CONSTRUCTION.
� POLICY C-15
IN ALL-ASSISTED (VEW CONSTRUCTION OF FAMILY HOUSING, SMALL
� DEVELOPMENTS IN SCALE WITH THEIR NEIGHBORHOOD SURROUNDINGS
ARE ENCOURAGED.
� It is the policy of the city currently to encourage econoi���ic
mix by giviny strong preference to assisted family housin5
in mixed developments where only 2U% of the units are
� assisted. There are a number of reasons for this policy�
.available Section 8 units are spread further ar�d help ti;
� generate more development
.locational choice for lower income households is increased
� .development not perceived as "subsidized" is more ea�ily
accepted by neigVhborhoods
� -36-
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�
.the possibility of problems in the future associated �
through past experience with concentrations of low
income households is avoided �
The development realized under this policy has been very
successful . The policy is, however, one of the reasons
that the production of assisted housing in St. Paul has �
been reduced over the last few years. With only 20%
of any development assisted, we have not generated enough
development to make use of the subsidy available in some �
years. In addition it is simply not economically feasible
in some cases to provide the assisted units that are
needed (particularly large family units) in development �
with the desired economic mix.
4.2.5 PUBLIC HOUSING �
Conventional Public Housing refers to units which are
owned and managed by the St. Paul Public Housing Agency.
These include 16 hi-rise apartment buildings for the �
elderly, four low-rise apartment and townhouse develor-
ments for families, and 86 "scattered site" homes for
families. An additional 67 "scattered site" units are
being acquired currently to help meet large family needs. '
These developments total to 4,095 public housing units
(1 ,448 family and ?_,647 elderly) , which represents 43%
of the assisted housing units in the city. �
POLICY C-16 �
THE CITY RECOGNIZES PUBLIC HOUSING AS AN INTEGRAL PART
OF ITS TOTAL HOUSING SUPPLY, AND PUBLIC HOUSING COMPLEXES
AS SIGNIFICANT COMPONENTS IN SOME OF THE CITY'S NEIGH-
BORHOODS. CONTINUED REINVESTMENT TO IMPROVE THE �
LTVING ENVIRONMENT IN PUBLIC HOUSING IS 70 BE ENCOURAGED.
Of late, federal E�rograms have provided for substantial '
reinvestrnent uri large public housing projects in
St. Paul . This effort has resulted in substantial �
improvements to the living environment of households in
Mt. Airy, and promises significant improvements in
McDonough Homes in the future with some spin-off to the
totai publ i c hr�usi ng effor�t i n the ci ty. �
POLICY C-17 �
THE PUBLIC HOUSING AGENCY SHOULD CONTINUE TO EMPHASIZE
PROVISION dF HOUSING FOR VERY LOW INCOME HOUSEHOLDS IN
EXISTING PUBLIC HOUSING UNITS. �
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�
� POLICY C-18
SUPPORT EFFORTS TO PROVIDE OWNERSHIP OPPORTUNITIES AND
I BROADEN ECONOMIC MIX IN PUBLIC HOUSING ONLY TO THE
EXTENT THAT THEY DO NOT RESULT IN UNREASONABLE REDUCTION
OF THE RESOURCES AVAILABLE TO THE LOWEST INCOME HOUSE-
HOLDS.
�
A major federal objective currently is to broaden the
income in public housing developments and to begin to
provide ownership opportunities for� some of the house-
holds dependent upon public housing resources.
Accordingly, planning is under�,ray for conversion of a
� few of the units in McDonough Homes for ownership.
This effort is consistent with city nbjectives to
increase the variety of ownership opportunities , and
� witPi economic mix policies. Federal policies, however,
should recognize that additional subsidies will be
needed to replace resources lost to the lowest income
1 households as a result of efforts to increase economic
mix.
Regulations recently adopted by the Department of
� Housing and Urban Development to implement federal
policies require that the occupancy in public housing
reflect, proportionally, the entire income range of
� the city' s low-income renter population. This effort
to increase economic mix within public housing will mean
that the St. Paul Public Housing Agency will have to give
preference to (relatively) higher ir�come households on
its waiting list as units become available. Public
housing now serves predominantly the lowest income
households in the city.
� While increasing economic mix is desirable, it is not
clear that the problems associated with concentr�ation
� of the lowest income househalds in public housing in
St. Paul are so great as to warrant denying opportunity
to the households most iri need in order to improve
� economic mix.
POLICY C-19
� THE CITY RECOGNIZES THAT TT IS THE PRIMARY RESPONSIBILITY
OF THE PUBLIC HOUSING AGENCY TO PROVIDE A DECENT,
DESIRABLE RESIDENTIAL ENVIRONMENT FOR LOW INCOME HOUSE-
� HOLDS, AND THAT IN SOME CASES THIS OBJECTIVE MUST TNKE
PRECEDENCE OVER THE HOUSING NEEDS OF AN INDIVIDUAL
HOUSEHOLU.
�
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�
POLICY C-20 �
THE CITY WILL CONTINUE TO WORK THROUGH ITS HOUSING
INFORMATION OFFICE WITH THE PUBLIC HOUSING AGENCY AND
WITH PRIVATE AGENCIES TO ENSURE THAT EVERY HOUSING NEED �
IS MET AS EFFFCTIVELY AS POSSIBLE.
Public Housing is aften looked to as a "last resort" ,
housing resource. For many households, to some degree,
it rnust fulfill this function. In some cases, house-
holds in need of that "last resort" are there because
of serious behaviar problems which has made their residence
in other situations intolerable to neighbors and has
resulted in eviction. There can be a conflict between �
reliance on public housing to meet this need in every
case and the nbjective of maintaining a satisfactory living
environment for lower income renter households. At the �
same time, it is the Public Housing Agency which has the
only available public resourc�s for�� meeting the most
difficult housing problems.
�
�
�
�
�
�
�
�
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4.3 HOUSING ASSISTANCE IMPLEMENTATION TABLE
1
Implementation Action (New and Existing) , Responsi6ility Funding Source
I
� 1 . Establish housing assistance goals by ; PED: Operating Budget
district and ensure that lower income neeqs Planning Division & (PED)
are addressed in the district housing District Councils
� development plans.
� 2. Solicit proposals and work with devel- PED: Operating Budget
opers to ensure effective use of availabl� Renewal & (PED)
assistance according to the objectives Planning Divisions
� established. & District
Councils
j3. Explore prospects for effective use of I PED: Operating Budget
Section 8 substantial rehabilitation par- I Renewal Division (PED)
ticularly in areas where rental units are
, beiny lost and housing for �low-income
households is needed.
� _ _._ --
4. Maintain liaison with Metropolitan Council� PED: Operating Budget
to ensure appropriate allocation of housir�g Planning Division (PED)
' assistance resources to meet St. Paul 's
needs. ,
'
5. Annually update the Housing Assistance � PEU: Operating Budget
� ' Plan to reflect changes in the best , Planning & (f�ED)
, opportunities for: New construction, Corr�nunity
I substantial and moderate rehabilitatiori, Development
� ; and rental assistance payments for exist- ' Divisions
Iing units.
�-- _..� _ __ __ ----
r �
� 6. Revise entire Housing Assistance Plan PED: Uperating Budget
Ievery three years as a part of the city's , Planning & (PED)
; Community Development Block Grant Corr�nunity �
� � application. � ' Developmeni �
� Uivisions �
� I
r _______ ___ ._ ___ ______� _ _ _._______ __ _ __________ _
' -continued�
-4(1- '
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Implementation Action (New and Existing) Responsibility Funding Source �
7. Determine an approximation of the number PED: Operating Budget �
of new market rate and assisted housing Planning Division (PED)
units appropriate for each district. & District
Representatives ,
8. Utilize available federal programs to Public Housing HUD Programs �
achieve reinvestment in pub�lic housing Agency
projects. �
9. Provide and distribute information on Housing In- Operating Budget �
housing programs which assist lower� income formation Office, (Public Housing
households. Public Housing Agency, PED, &
Ngency Mayor's Officej �
PED: Renewal
Division
'de relocation assistance to those PED� Renewal Corr�nunity Devel- �
10. Provi
displaced by public action under the prc�- ( Uivision opment Block
visions of the Uniform Relocation Act. i Grant '
�
J. � _._ _ .
�
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I5.0 NEIGHBORHOOD QUpLITY
�
� 5. 1 NEIGHBORHOOD QUALITY OBJECTIVE 4 �—
OBJECTIVE ACHIEVE A CONSERVATION STATUS FOR 80% OF ST. PAUL'S
RESIDENTIAL BLOCKS BY 1990.
� A.REALIZE SUBSTAPJTIAL IMPROVEMENT OF 1000 RESIDENTIAL
BLOCKS THROUGH PUBLIC ACTION AND PRIUATE REINVESTMENT.
jB.P�IAINTAIN AND CONSERVE 1680 RESIDENTIAL BLOCKS.
� C.ACHIEb'E ENt�UGH REHABILITATIUN TC REJUCE SUBSTANDARD
JiVITS TO ��O i�l0�tc THFiN l;i% UF ��i��:� f�OUSIPJ� SUPP�Y.
� ��1ost of the households living in St. Paul in 1990 -- in
2000 and 2010 for that matter -- will be living iii
housing units that exist in the city today. Our greatest
� oppurtunity to determine the character and quality of our
housing and neighborhoods for the future lies in
efforts to improve and maintain what we have.
� Housing conditions deteriorated in older neighborhoods
during the 1960's. A 1974 survey of housing conditions
indicated that approximately 11 ,300 units had major
� deficiencies or were dilapidated and 22,000 units had
minor deficiencies , a higher level of deterioration than
was indicated by the census of 1960.
, Sir�ce the 1974 study, there is considerable evidence that
the process of general neighborhood decline in St. Paul
� ha5 turned around. Much i�as been made of the "back to
the city" experience in the Ramsey Hill , Irvine Park and
Summit-University neighborhoods. Young, middl�-income
farnilies have foresaken the suburbs to purchase housing
� in city neighborhoods. But reinvestment is not confined
tU these areas of greatest historical interest. Merriam
Park, Lexington-Hamline, South Como and about a half
, dozen other neighborhoods are generating significant
rehabilitation and improvement activity.
� We have no reliable comparative measure of how housing
conditions today rank against what they were in 1974.
However, we do have the following general indicators of
irnprovement activity: 1 ) A dramatic increase in permits
� issu�d for "additions, alterations, and repairs" in 1976
and 1977. This follows a long period of gradual decline
in permit activity. 2) Lending for home improvement by
� banks and savir�gs and loan institutions has increased:
over 1 ,5U0 horne improvement loans were made ir� ly7�i,
up from just over 1 ,000 per year 7n 1976 and 1�77. 3)
, Increase� public funding for• r•ehab: 1 ,839 loans and
grants hav� been funded throuc�h thE citywide and MHFh
� -42-
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�
rehab programs since they were begun in 1975-1976, and �
the annual lending rate has reached approximately 1 ,500.
What level of neighborhood housing quality can St. Paul '
hope to achieve by the end of the next decade? The
Residential Improvement Strateyy adopted in 1977 �
classifies a11 residential areas ofi the city on the basis
of housing condition. Improvement need classifications
are matched with appropriate program measures ranging
frarn surveillance and maintenance required to ensure ,
conservation of sound areas to intensive improvement
programs to eliminate substandard conditions. "Conservation"
designates areas where the need is to maintain what �
is already basically sound. The designation "improve-
ment" is applied to those areas where improvement
measures are needed to overcome deterioration which has �
occurred. Half of the city' s resider�tial blocks (1 ,680
blocks or 49.5 percent) were designated "conservation"
in the 1977 study.
As a result of the extensive reinvestment underway in �
city neighborhoods , a significant number of blocks
originally classified as "Improvement" areas would now �
be classified Conservation areas. A new survey to be
completed in 1980 will determine the actual extent of
improvement. Based on accomplishments under concentrated ,
neighborhood improvement programs, it is reasonable
to project that 80 percent of the residential blocks
cou�ld be in the "conservation" category by 1990.
Achievement of this objective, is contingent on two �
important factors : first, those areas which already
ar� in a Conservation status must not be allowed to ,
deteriorate into a worse condition where extensive im-
provement and r�ehab work is needed9 and secondly, those
areas that have undergone and are undergoing extensive
rehabilitatiori efforts rnust also be maintained and ,
conserved.
5.2 NEIGHBORHOOD QUALITY 5.2.1 COMMITMFNT TO NEIGHBORHOOD IMPROVEMENT ,
POLICIES
POLICY Q1 �
NEIGHBORHOOD iZEilITALIZATION WILL REMAIN A MAJUk CUMMTTMEN7
IN THE CITY'� CAPITAL ALLOCATION POLICY.
t
Neighborhood improvements efforts in St. �aul hav�
accounted for enormous public investment k�y the city. �
From the beginning uf urban rer►ewal programs in 1967
ta the present, approximately 19% of the tatal residential
J4' �
� I
,
tblocks in the city have been included in some form of
concentrated neighborhood improvement effort with varying
� levels of public funding. That figure includes all
urban renewal areas and, therefore, includes blocks
included within large project areas that benefited only
marginally from program efforts as well as blocks that
� were the subject of total clearance and redevelopment.
Since the initiation of concentrated neighborhood
improvement in "Identified Treatment Areas" , improvement
, efforts focused primarily on rehabilitation and public
improvement, approximately 250 residential blocks or 7,0
of the total residential blocks in the city have been
1 included in this kind of program effort.
Neighborhood improvement remains a ma�or focus of the
city' s Capital Allocation Policy guidelines and is
� reflected in ihe current allocation of expenditures
under the city' s Community Development Block Grant
Program. Approximately 37% of 1979 Community Develop-
� ment and Capital Improvement Bond funds are going toward
rehabilitation assistance or public improvements directly
related to concentrated neighborhood improvement efforts.
This level of commitment of public r�esources is necessary
� if the neighborhood housing quality objective is to be
achieved.
� Moreover, maintaining a similar proportional level of
corninitment to neighborhood improvement means a declining
level of actual support because available public resources
� (both Corr�nunity Development Block Grant dollars and
other public improvement funds) are shrinking. Private
reinvestment must continue to increase to make up for
1 reduced publi� capability. �' {
5.2.2 NEIGHBORHOOD IMPROVEMENT PROGRAMS
, P(7LrCY Q2
TH� CURRENT IUENTIFIED Tk�RTMENT AREAS SHOULD BE SUPPORTEll
AS FULLY AS AVAILABLE FUNDING WILL ALLOW. EXPANSION OF
� THE IDENTIFIE� TRENTMENT AREA PROGRAM SHOULD ONLY BE
CONSIDERED WNEN EVALUATION INDICATES THAT THE MAJOR
IMPROVEMENT NEEDS IN EXISTING PROGRAM AREAS HAVE BEEN
MET OR THAT THE PRIVATE REINVESTMENT CLIMATE IN THESE
� AREAS IS STRONU ENOUGH T� �ONTINUE TH� MOMENTUM.
� POLICY Q3
EMPHASIS WILL �E PLACED ON LEVERAGE OF PRIUATE INVESTMENI�
WITH LIMI7ED PUBLIC RESOURCES FOR NEIGHBORHOOD TMPROVEMENT.
EXPENSIVE LARGE-SCALE PUBLIC CLEARANCE AND REDEVELOPMEN�f
� WILL BE AVOIDED WHEREVER POSSIBLE IN FAVOR OF INCREMFNTAL
APPROACHES AND MEASUkES LESS RELIANT OPd HEAVY PUBLIC
� FUNDING.
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POLICY Q4 �
THE CITY SHOULD CONTINUE TO SUPPORT NEIGHBORHOOD HOUSING
SERVICES, AND IN THE EXPANSION OF THAT PROGRAM SHOULD
WORK FOR THE MOST EFFECTIVE TNTEGRATION OF NHS EFFORTS �
WITH THE TOTAL NEIGHBORHOOD IMPROVEMENT EFFORT IN THE
CITY.
There are two neighborhood improvement programs in St. Paul : �
Identified Treatment Area and Neighborhood Housing
Services. '
The Identified Treatment Area program combines rehabili-
tation measures with public improvements and other re- �
lated measures for concentrated improvement of a small
area over 3-5 years. The program grew out of concentrated
improvement efforts under the neighborhood development
program (urban renewal ) and efforts to find measures for �
effective use of the city's own rehabilitation assistance
resources when the city' s own rehabilitation loan programs
was initiated. Small (6 to 8 blocks) Identified Treat- �
ment Areas have been completed at 22 locations in the city
with varying degrees of effectiveness. Currently, programs
are under way in six larger ldentified Treatment Areas
planned for th� three-year community development effort �
begun in the summer of 1979.
The Identified Treatment Area program was designed to ,
achieve effective overall improvement quickly in areas
where rehabilitation is the major need. Much of the
area incorporated under the program in the projects �
recently approved would not have qualified under that
criteria. The Identified Treatment Area program is now
being used in areas with more extensive redevelopment
needs. It is clear that major portions of the needs ,
in these areas can be met with available tools , but
resources may not be available for same time to meet all
of the redevelopment needs in these areas. "Completion" �
of the ITA program in these areas, particularly Railroad
Island, and the Rice Street/Lewis Park ITA, may mean
reaching a point where much of the rehabilitation need �
has been met, redevelopment efforts are underway to one
degree or another, and the level of confidence is great
enough that market forces and private interests can be
counted on to continue the redevelopment and improvement i
process. �
The level of available resources will not allow for �
expansion of the Identified Treatment Area program until
much of the need in these 6 new areas have been ��et.
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Careful monito ing and evaluation of the results in
these program reas will be required for determination
of future IT.A program efforts.
' In the' Nei hbor�hood Housin Services ro ram the city
participates as a partner along with the private
' financial comnunity and neighborhood residents in a
program effort initiated with the help of the Neighbor-
hood Reinvestment Corporation.
, NHS adds to the neighborhood improvement effort a number
of ingredients that are not part of the Identified
Treatment Area program: full time neighborhood staff
, providing more 'technical assistance to property owners,
a revolving loan fund that can be used with considerable
flexibility to meet criticial needs that' do not fit any
' of the availabl!e resources , a corporate structure through .
which neighborhood residents and lender representatives
provide leader�hip and direction for the program.
' Extensive revitalization of a number of residential blocks
i n t h e M e r r i a m P a r k a r e a h a s b e e n r e a l i z e d t h r o u g h t h e
Neighborhood Nousing Services program and expansion of
� NHS to new neighborhoods in the �city is presently under
consideration. In addition to geographic expansion of
the program in St. Paul , expansion of the NHS partnership
' is underway to include the insurance industry as a ma�or
participant nationally.
, The Neighborhood Housing Services Program has proven to
be an effective vehicle ta bring neighborhood residents,
private lenders and government together to bring needed
reinvestment about. Much of the•continuing dialogue in
' the city between government and private lenders and the
involvement of private lending institutions in a coopera-
tive fashion in a number of programs can be traced back
' to the initial NHS efforts.
5.2.3 NEIGHBORNOOD IMPROVFMENT ROLES �� �
'
POLICY Q5
, THE CITY IN ITS ROLE IN NEIGHBORHOOD IMPROVEMENT WILL
EMPHASIZE CAPITAL INVESTMENT REQUIRED FOR PUBLIC IP4PROVE-
MENTS, THE AUMTNISTRATION OF GRANTS AND LOW INTEREST
' LOANS AS REQUIRED TO MEET �i�HE NEEDS OF LOWER INCOME HOUSL
HOLDS, AND WILL PUT INCREASED EMPHASIS ON THE SENSITIVE
USE OF CODE INSPECTION AS I\P� iMPROVFMENT AND MAINTENANCf
' TOIIL I N P ROGRAM AREAS.
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POLICY Q6 '
TNE CITY WILL ENCOURAGE RESIOENT GROUPS AND PRIVATE
SECTOR INSTITUTIONS TO EXPAND THEIR ROLE IN PROVIDING
THE OTHER COMPONENTS OF THE NEIGHBORHOOD IMPROVEMENT '
EFFORT: NEIGHBORHOOD ORGANIZATION, EFFECTIVE MARKET-
ING OF PRIVATE LENDING, THE DEVELOPMENT OF NEIGHBOR-
HOOD LENDER RAPPORT, AND TECHNICAL ASSISTANCE. '
POLICY Q7
PLANNING FOR NEIGHBORHOOD REVITALIZATION WILL BE FOCUSED �
AT THE DISTRICT LEVEL.
1 .THE CITY SHOULD PROVIDE DISTRI�TS WITH CITYWIDE PRO- ,
JECTIONS OF THE LEVELS OF RESOURCES WHICH CAN BE ANTICI-
PATED.
2.LONG RANGE IMPROVEMENT STRATEGIES SHOULD CONTINUE TO ,
BE REFINED AT THE OISTRICT LEVEL.
POLICY Q8 ,
FLEXIBILITY WILL BE EMPHASIZED IN PLANNING FOR CONCEN-
TRATED AND GENERAL IMPROVEMENT TO ALLOW FOR THE BEST �
PROGRAM MIX FOR EACH NEIGHBORHOOD.
Neighbo�hood improvement efforts have been developed and '
refined considerably since 1970. The following trends
are particularly evident in the development of policy
and program over the last years : '
Increasing reliance on resident participation and local
neighborhood initiative in program development and imple- t
mentation.
Increasing program flexibility to fit the needs of each '
neighborhood.
Expansion of the roles filled by private agencies and an
improving working relatior�ship between city government '
and private interests.
We have learned that major improvement can be realized ,
through concentrated revitalization programs, that
considerab1e reinvestment can be stimulated and visible
environmental changes brought about. But we have also '
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learned a great deal about the needs of city neighbor-
hoods which will require regular attention on a
continuing basis. Several components of the rehabilita-
� tion process are needed to one degree or another in
every older neighborhood on a continuing basis. The
mix of needs differs from neighborhood to neighborhood
� depending on market conditions , building conditions ,
physical and social characteristics.
1 The components of neighborhood improvement include neigh-
borhood organization, financial assistance, private
lending, technical assistance, housing inspection and
housing code standards, rental property rehabilitation
, and public improvements.
TECHNICAL ASSISTANCE
� The city has over the last two years decreased its role
in providing technical assistance tu homeowners in order
to concentrate its efforts on making the financial
assistance available to more households. Technical
� assistance is available to households who need ity but
owners are encouraged ta do as much of the work of
planning the rehabilitation and contracting for it as
� they reasonably can. The evaluation study of Identified
Treatment Area efforts completed in 1978 recommended
that the city increase its role in this area. Neighbor-
1 hood Housing S�rvices, with operational support from
private lendiny institutions, provides extensive technical
assistance in NHS program areas. Consideration of the
extent of this need should be part uf program evaluatior�
� for the new Identified Treatment Areas.
FINNNCIAL ASSISTANCE TOOLS
� Improvement costs remain well beyond the means uf mariy
cit,� property owners , and as long as this is the case,
public subsidies in the form of low interest loans , and
� in some cases grants , will be an essential part of the
program effort: 7his will remain a ivaj�r role for� the
city.
� PRIVATE LENDING
In recent years, private lending in the city for improve-
ment has increased steadily. It is essentially equal
� to public sector lendiny �n the number of loans made per
year, and increasing at the same rate. The provisior�s
of the Community Reinvestment Act should aid the con-
� tinued cooperation between the city and private lenders
toward th� end ofi� ar� i r�creas i ng porti on of the need and
an increasing portion of the marketinc� effort m�t througt!
pr�vat� source5
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NEIGHBORHOOD ORGAPJIZATION '
The city's district participation structure allows for
strategy development at the district level which is ,
very important to the total effort. NHS and local ITA
Committees have demonstrated the importance of local
organizations for the success of any individual program.
HOUSING INSPECTION AND THE HOUSING CODE I
City program efforts are characterized by a "voluntary"
approach to code compliance, with emphasis on inspections '
given to critical code deficiencies identified as health
and safety measures. While the voluntary approach has
resulted in substantial participation in some areas,
the impact in many areas is limited by the lack of ability ,
to enforce agreed upon standards.
RENTAL PROPERTY REHABILITATION '
For the most part areas with extensive rental property
have simply been avoided in identifying project areas
because of the lack of tools to meet this kind of rehabil- ,
itation need. The Certificate of Occupancy program pro-
vides a significant tool which should ensure eventual code
compliance by all owners of multi-unit properties. In �
addition, new rehabilitation resources are being developed
to meet these needs. Effective measures for rehabilitation
of multi-unit properties are necessary to ensure that:
1 ) rental properties are not a serious obstacle to ,
neighborhood improvement in any area; and 2) neighborhood
improvement is possible in areas in which a large part of
the housing is in rental structures. '
5.2.4 REHABILITATION ASSISTANCE �
POLICY Q9
THE CITY WILL CONTINUE TO CHANNEL REHABILITATION LOANS �
AND GRANTS TO L(7WER AND MODERATE INCOME HOMEOWNERS THROUGH-
OU7 THE CITY.
POLICY 10 �
Q
REHABILITATION OF MULTI-UNIT PROPERTY SHOULD BE STIMULATED
THROUGH MORE EFFECTIVE CODE ENFORCEMENT. WHERE CLEARLY �
NECESSARY PUBLIC ASSISTAN(;E IN THE FORM OF LOW INTEREST
LOANS SHOULD BE AVAILABLE FOR MUL7I-UNIT REHABILITATION.
�
POLICY Q11
WHERE PUBLIC ASSISTANCE IS PROVIDED FOR MULTI-UNIT ,
REHABILITATION, CARE MUST BE TAKEN TO EPJSURE THAT THE
REHABILITATION WILL NOT RESULT IN EXCESSIVE RENTAL RATES
AND THAT THE HOUSEHOLDS IN NEED OF MODEST-COST RENTAL
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, UNITS ARE THE ULTIMATE BENEFICIARIES.
' POLICY Q12
WHERE PUBLIC ASSISTANCE IS PROVIDED FOR REHABILITATION
OF RENTAL UNITS, SUBSIDIES SHOULD BE USED WHERE NECESSARY
' AND WHERE AVAILABLE TO AVOID DISPLACEMENT. WHERE
HOUSING ASSISTANCE CANNOT BE MADE AVAILABLE, RENT REGU-
LATORY AGREEMENTS SHOULD BE USED TO AVOID DISPLACEMENT.
1 Rental structures owned by absentee landlords have been
a substantial obstacle to neighborhood improvement in
� many areas. Absentee landlords are often not as willing
as owner occupants either• to take an active role in
neighborhood improvement �r to invest the necessary
� resources to correct deficiencies in structures they
own. Rental income frequently is inadequate to allow
substantial property impravement.
� The city' s Certificate of Occupancy program is a major
step toward resolution of this problem. Achievement
of adequate rehabilitation remains limited, however,
� because of the lack of available financing for the work
that is required. Where financing is available from
private sources, the cost of that financing often would
a1�iow for rehabilitation only with substantial rent
� increases to cover the cost.
Because of the need to retain low-cost rental units and
� because of the amount of rehabilitation needed, the city
should emphasize expansic�r� of assistance for absentee-
owned, multi-unit rental property along with firm
� code enforcement.
5.2.5 PUBLIC IMPROVEMENTS
�
POLICY Q13
, PROJECTED AVAILABILITY OF PUBLIC IMPROVEMENT RESOURCES
WILL BE CAREFULLY CONSIDERED BEFORE ANY FURTHER EXPANSION
OF CONCENTRATED NEIGHBORHOOD IMPROVEMENT PROGRAMS IS
� CUNSIDERED. REVITALIZATION EFFORTS SHOULD NUT NECESSARILy,
HOWEVER, BE LIMITED BY THE CAPACITY TO COMPLETE ALL
NEEDED PUBLIC IMPROVEMENTS IN THE TMMEDIATE FUTURE.
� PULICY Q14
LONG-IZANGE (3-5 YEAR) PROGRAMS WILL BE DEVELOPED AT �OTH
� DI�TRIC7 AND CITY LEVELS FOR STREET IMPROVEMENTS AND
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ANNUAL IMPROVEMENT PROPOSALS WILL BE REUIEWED ON THE ,
BASIS OF SUCH PROGRAMS.
POLICY Q15 �
THE RESIDENTIAL STREET PAVING PROGRAM SHOULD BE CONTINUED
AND SHOULD BE DIVIDED BETWEEN IMPROVEMENT AREAS WHERE �
CONCENTRATED EFFORT CAN BE REINFORCED, AND CONSERVATION
AREAS WHERE CONTINUED CONFIDENCE NEEDS TO BE DEMONSTRATED.
,
The combination of public improvements with efforts to
stimulate private investment in rehabilitation has proved �
to be an effective method to stimulate renewed confidence
in neighborhoods. In many cases the promise of new
streets has been the primary incentive for neighborhood
groups to develop and carr•y out Ideritified Treatment �
Area programs. Public improvements are one of the
primary government responsibilities in the Neighborhood
Housing Services Program. �
There is a danger that the continuing development of
concentrated improvement programs is overreaching the '
city's capability to provide the public improvements.
Community Development Block Grant funds, used for street
improvements in eligible areas, are diminishing. Capital
imprnvement funds used for the city's street paving program t
are sometimes not available because of other priorities.
It may not be desirable or necessary to limit concentrated �
improvement efforts to areas that can be supported with
all needed pub�lic improvements. Where needed improvements
cannot be met within the immediate future, however, little
private reinvestment is likely unless longer range pro- �
gramming can be established which makes it possible for
neighborhoods to have some understanding of when in the
future improvements can be expected. '
Currently neighborhoods compete annually in the capital
al'iocation process for public improvement funds. Neigh- '
borhoods with rehabilitation programs completed but still
in need of further street improvements are left with little
idea of likely timing for additional work. While all
of the improvements cannvt be made when desired, more long- 1
term programming is needed so neigh�orhoods can have a
better under�tanding of whdt the r�al possibilities are.
'
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, 5.2.6 IMPROVEMENT OF ENERGY EFFICIENCY
' OBJECTIVE 5
ACHIEVE WEATHERIZATION OF AT LEAST 85% OF ST. PAUL RES-
IDENTIAL STRUCTURES OVER THE NEXT 10 YEARS AND SUBSTAN-
' TIAL ACHIEVEMENT IN THE APPLICATION OF NEW TECHNOLOGY
TO REDUCE USE OF NON-RENEWABLE FUELS IN ST. PAUL HOMES.
, Since over half of St. Paul 's housing units are more
than 50 years old, a major part of the effort to im-
prove energy efficiency must be directed at the existing
� housing stock.
A typical older, three-bedroom home in the city with
� 1 ,400 square feet of living space and a natural gas
heating system might have cost about $273 per year to
heat in 1972. Assuming a 30% decrease in energy
consumption through insulation, caulking and weather-
/ stripping, fuel costs still would have risen ta $570
by 1979 becaus� of rising costs. Without insulation
the cost would have risen to �670. If estimations of
' natural gas cost increases are accurate, by 19�5
the yearly heating bill for this house will be about
$1 ,000.
' Newly constructed housing can be much more energy
efficient than most of the housing which exists in
St. Paul . If the existing housing is going to remain
� attractive in the market and reasonably affordable,
substantial improvement in energy efficiency is
essential .
�
POLICY Q16
� THE CITY WILL GIVE PRIORITY TO REHAB EFFORTS TH�1T RESULT
IN GREATER HOUSEHOLD EPJERGY EFFICIENCY AND CONSERVATION.
A. IN PUBLICLY ASSISTED REHABILITATION EFFORTS, IMPROVING
, THE ENERGY EFFICIENCY OF HOMES WILL �E SECOND IN PRIORITY
ONLY TO MEETING HEALTH AtJD SAFETY REQUIREMENTS.
� B.DEVELOP A RELIABLE DATA BASE IDENTIFYING THE ENERGY
IMPROVEMENT NEEDS OF ST. PAUL'S HOUSING STOCK.
, C. INCREASE STAFF CAPACITY TO IDENT?FY ENERGY REHAB NEEDS
AND PRIVATE TECHNrCNL ASSISTANCF RESOURCES FQk HOUSEHOL[►
IMPROVEMENT.
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D. IDENTIFY MEASURES OF INCREASING PUBLIC/PRIVATE �
COOPERATION IN ACHIEVING GREATER HOUSEHOLD ENERGY
EFFICIENCY AND CONSERVATION.
'
POLICY Q17
HOUSING AND BUILDING CODES WILL BE UPDATED AS REQUIRED '
TO ENSURE HIGH STANDARDS OF ENERGY EFFICIENCY IN NEW
CONSTRUCTION AND REHABILITATION.
POLICY Q18 �
ENERGY EFFICIENCY WILL BE RECOGNIZED AS AN OBJECTIVE IN
THE REGULATION OF LAND USES AND THE ZONING ORDINANCE �
WILL BE AP�IENDED WHERE WORKABLE MEASURES TO PROMOTE MORE
ENERGY EFFICIENT HOUSING CONSISTENT WITH THE MAINTENANCE
OF NEIGHBORHOOD QUALITY CAN BE IDENTIFIED. ,
The Existing Housing and Zoning Sub-committee of the
Energy Committee of 100+ has made extensive recommen- �
dat�ons as to how they city's housing code and zoning
�r•dinance should be amended to include energy conservation
requirements for existing housing. 7hese recommendations ,
are being studied by various groups now. Based on the
conclusions reached by those studying the recommendations,
some or all �f them may become a par°t of the Housing �
Implementatian Plan,
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' S.3 NEIGHBORHOOD UALITY TABLE 0
Implementation Action (New and Existing) �' Responsibility Funding Source
�
1. Provide public and private lending assis�ance PED: Renewal Private Lending
� at comparable levels to achieve rehabili+ Division, Neigh- Corranunity Devel-
tation of 15,000 substandard housing uni�s. borhood Housing opment Block
, Services, Private Grant, Sec. 312
Lending Program, Sec. 8
�� Institutions Substantial &
� Moderate Rehabil
; itation, Private
Lending
i
� 2. Continue implementation of Identified Tr at- PED: Renewal , Community Devel-
' ; ment Area program monitoring needs, reso rce Planning, and opment Block
; availability and program effectiveness. Corr�nunity De- Grant
velopment
( Divisions
' � �
� ._
i3. Support Expansion of Neighborhood Housin� Neighborhood Community Devel-
' I Services program into at least two Housing Services opment Block
! additional neighborhoods. Board, Private Grant, Operating
( Lending & Insur- Budget, Private
' j ance Institutions Sources
I ; PED: Planning,
, Renewal , Dept.
, � ' of Community
� Services
� �.
Coordinate cap�tal improvements with PEU: Plamm�g, City Operating
neighborhood revitalization efforts throu�h Renewal , Dept. Budget
� , longer range (3-5 yr. ) programminy. of Public Works,
� Dept. of Community j
� Services, Mayor's
� � gudget Office I
I
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�' '' �
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5.2.7 NEIGHBORHOOD UALITY CONTINUED ,
Implementation Action (New and Existing) Respons'ibility Funding Source ,
5. Implement bond-financed multi-unit rehabili- PED: Renewal PED Operating ,
tation program with guidelines to minimize Division Budget
displacement and rent increases. Private Lenders
�
6. Amend city's housing code to include require- Dept. of Commu- City Operating �
ments for energy efficiency in existing nity Services - Budget
housing. Housing Code
Enforcement
Division �
Energy Office
7. Revise city's rehabilitation program guide- PED; Renewal City Operating ,
lines to require completion of energy Uivision Budget
improvements along with health and safety Energy Office
requirements. ,
8. Establish an Energy Conservation Fund PED: Planning & Private Founda- '
supported by public and private resources Renewal Division tion and Fed-
to provide loans and grants to low, mod- Private Founda- eral Grants
erate and middle income and rental tions City Operating '
property owners for energy improvements. Energy Office Budget
PED 0 eratin '
9. Establ�sh in 1980 a reliable data system PED: Planning p 9
for monitoring city-wide housing Division Budget
conditions. �
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� 6.0 MAINTENANCE
i
� � In spite of the current level of rehabilitation activity,
deterioration cpuld, in the long run, outrun improvement
efforts if expenditures are concentrated exclusively on
' areas with extensive rehabilitation need and little is
done to prevent continuing deterioration in other areas.
The existing sound housing stock is the city's most
� important asset and consistent effort is needed to
prevent its deterioration�
, 6.1 MAINTENANCE OBJECTIVES OBJECTIVE 6
PRESERVE THE EXISTING SOUND HOUSING STOCK IN ST. PAUL.
� A. IMPROVE EFFECTIVENESS OF THE CODE ENFORCEMENT SYSTEM.
B.FACILITATE CODE COMPLIANCE THROUGH FINANCIAL AND TECH-
� NICAL ASSISTANCE FOR PROPERTY OWNERS OF SINGLE-FAMILY AND
MULTI-UNIT STRUCTURES.
C.ENSURE ADEQUATE MAINTENNNCE AND UPGRADING OF PUBLIC
� FACILITIES.
D.ENSURE ADEQUATE MAINTENANCE UF PROPERTY EXTERIORS AND
, YARDS.
' An adequate level of mairitenance to forestall extensive
deterioration requires regular investment on the part of
homeowners and landlords in the upkeep of their property,
and regular public investrnent in the rnaintenance of
� streets, sidewalks, parks � schools and other public
facilities which are part of the neighborhood environment.
� 6.2 POLICIES 6.2.1 CODE ENFORCEMENT
, POLICY M1
CUUE INSPECTION AND ENFORCEMENT EFFORTS WILL BE DESIGNED
TO MAKE CLEAR TO ALL PROPERTY OWNERS THAT THE CITY AND
� CITY NEIGHBORHOODS ARE SERIOUS ABOUT THE MAINTENANCE OF
PROPERTY TO REASONABLE STANDARDS ESTABLISHED IN THE
HOUSING CODE aND TO ENSURE AN ADEQUATE LEVEL OF PROPERTY
� MAINTENANCE.
A.CODE COMPLIANCE WILL BE ENCOURAGEU FOR THE PURPOSE OF
� PREVENTING DETERIORATION�
B.MEASURES WILL BE DEVELOPED TO ENCOURAGE AWARENESS
AND UNDERSTANDING OF THE HOUSING CODE AMONG CITY
' RESIDENTS, PROPERTY OWNERS AND NEIGHBORHOOD GROUPS_
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C.THE HOUSING CODE WILL BE AMENDED TO REQUIRE REASONABLE �
UPKEEP OF PROPERTY EXTERIORS.
One important, basic tooT which the city has to stimulate �
continued maintenance of residential properties is the
Housing Code. The St. Paul Code establishes minimum �
standards intended to apply to all existing residential
structures. Theoretically, the establishment of such a
standard as a legal requirement ensures at least that �
structures are not allowed to deteriorate below minimum
levels of health and safety.
Present housing code enforcement practices in the city '
include:
.Inspection and enforcement in response to a specific �
complaint(s) brought by neighbors or tenants;
.Encouragement of voluntary compliance through rehabil- �
itation programs; and
.Regular enforcement for all structures of four or more �
residential units through the Certificate of Occupancy
Program, as stipulated in the St. Paul Legislative Code.
. ,
A review of housing code enforcement is currently under-
way to identify possibilities for increasing its effect- �
iveness as a tool to prevent deterioration.
Negative attitudes and fears which the idea of "code
enforcement" generates stem in part from misunderstandings �
and a lack of information about the housing code and its
purposes and in part from past use of "code enforcement"
in areas where a great deal of improvement was needed �
and actual enforcement created hardship, or was perceived
to create hardship, for some residents. This obstacle
can be overcorne by: 1 ) greater participation by local
neighborhood groups in operating and guiding code enforcement �
efforts; 2) using an inspection process in areas of basically
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, sound housing as a preventive measure; and 3) by
emphasizing information of value to the owner and en-
couraging voluntary compliance rather than emphasizing
' "enforcement."
Approximately 47% of St. Paul households reside in rented
' units, and for this segment of the population, effective
maintenance is hindered by the existing code enforcement
system.
� At present, a cnmplete housing inspection of a rental unit
can only be requested by the property owner. A tenant
may only initiate inspection for a specific complaint,
� such as questioning the safety o:f the furnace. A complete
inspection of the unit may result, if the housing inspect-
or determines that it is advisable.
' Once a renta1 unit has been tagged for a code violation(sj
there is little recourse for the tenant to force the land-
lord to make the needed repairs. 1"he alternatives of reni
� withholding or legal proceedings through the Unlawful
Detainers Court System are o�ten avoided, as tenants fear
the potential retaliatory effects of increased rents or
� eviction.
Special attention will be given to this area during the
� code enforcement study.
An additional potentially effective use of the city' s code
is partial enforcement in a limited area for a specific
� ' purpose. In other cities neighborhood improvement programs
have been developed utilizing code enforcement to correct
all exterior deficiencies such as littered yards, dilapi-
' tated garages and fences, and broken walks; deficiencies
of all parts of the property OTHER than the house itself.
The adequacy of the St. Paul Housing Code, as a standard
for property maintenance, currently is limited by the
` lack of specific requirements related to EXTERIOR property
conditions. Visible exterior conditions are critical
to the environmental quality of the city's neighborhoods ,
, and attentior� to these in Conservation Areas is of
considerable importance.
� A basic requirement for any action to stem deterioration
is accurate iriformation on where deterioratiori is
occurring. Effective preventive actions will require
� early identification of deterioration. A program of
surveillance -- periodic windsfiield survey of areas of
sound housing -- carried out on a regular basis can
provide the needed early warning. Consideratiur� should
� be given to a surveillance program fo� areas of saund
housing.
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6.2.2 TECHNICAL AND FINANCIAL ASSISTANCE '
POLICY M2 ,
THE CITY WILL ENCOURAGE DEVELOPMENT OF FINANCIAL AND
TECHNICAL ASSISTANCE NECESSARY FOR AN ADEQUATE LEVEL
OF PROPERTY MAINTENANCE. �
Possibilities exist for program efforts to improve the
maintenance of owner-occupied and absentee landlord (rental ) �
properties where financial resources and/or technical
capabilities are inadequate. These include proNision
for homeowner contracts for maintenance services which ,
may be made available by private firms and/or by a locally
organized nonprofit service with some form of subsidy to
reduce cost to lower income owners. Such programs have �
been designed to serve specific, limited neighborhoods
with costs geared to population capabil�ties, or for a
particular population group such as the elderly. Retired
tradespeople are being employed successfully in some cities �
to make maintenance services available at reduced cost
to elderly homeowners.
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6.2.3 PUBLIC FACILITIES
POLICY M3 �
THE CITY WILL MAINTAIN PUBLIC FACILITIES, UPGRADING THEM
WHERE NECESSARY; WITH PRIORITY FOR AREAS WHERE INTENSI- �
FIED MAINTENANCE IS NEEDED AND ALSO WHERE PRIVATE MAINTE-
tJANCE EFFORTS ARE INITIATED.
Public facilities represent tangible evidence of �he
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city's commitment to a neighborhood. How streets, side- �
walks, parks , etc.�, are provided and maintained play
an important role in stimulating private household
investment and neighborhood revitalization efforts where
rehabilitation is needed. It is important to realize also '
that public facilities must be adequately maintained
and upgraded in order to sustain confidence in sound areas.
Priority should be given to those Conservation II Areas ,
(see Residential Improvement Strategy neighborhood classifi-
cation) where intensive maintenance is required and also,
where feasible, those areas where private maintenance
efforts are initiated. '
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, Available funds for public improvements will be very
short over the next ten years relative to the needs.
The city has placed a high priority on the strategic use
' of public improvements to support and stimulate private
reinvestment where needed. That approach will be con-
tinued under this plan as indicated in Chapter 5. This
' policy, however, recognizes the need for some balance.
Continued attention to the maintenance of public
improvements in sound areas is necessary to prevent
deterioration and disinvestment.
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' . MA N N CE stu y o the co e en orcemen system s n,progress.
IMPLEMENTA?ION The study will � explore altprnative measures that could
_ be employed-to improve maintena�nce and increase r�eigh- f
' _ borhood confid nce. �mplementatfon act,ivitips will de- •
pend in part u on recommendati�ons from that study. The
role of the co rt in the enforcement pr�cess will b� re-
t viewed and opt ons such .as a sepa�rate housing court
considered. T e study will examine possibilities for
more.extensive' use of. the code enforcement process and
educational me sures to prevent deterioration of housing
� and neighborho ds.
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� + Implementation Action (N�w and Existing) ,� Responsibility . �unding 5ource
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� � 1 . Expand the code enforcement inspection ar�d Corranunity Ser- Operating Budge
? surveillance capabilities. vices Dept. : (CSD)
I Housing Code
; , i Enforcement
I Division
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2. Develop methods to encourage greater par�± PED. Planning & Operating Budge
ticipation of heighborhood groups in ope�- CSD Housing Code (PED & CSD)
� � ating and guiding code enforcement Enforcement .
� efforts. Division
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i 3. Coordinate technical and financial PED: Planning & Uperating Budge
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� � assistance with the code inspection proc�ss. CSU Housing Code (f�ED & CSD) �
Enforcement I
! Division ,
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Implementation Action (New and Existing) Respons�ibility Funding 5ource '
4. Cantinue effective implementation of the " PED: Federal , State, '
following existing programs and ordinances: Planning, and City Gov-
Renewal b ernment; Revenue
a. Historic Preservation Community Bond Programs. �
Development
b. Citywide rehabilitation loans and grants Divisions
c. Section 312 rehabilitation loan and grant �
d. Code Enforcement •
e. Certificate of Occupancy � �
f. Truth-in-Housing � � �
5. Develop additional public and private PED Banks, Found- �
resources for maintenance program Mayor's Office ations, Block
expansion. Grants, Neigh-
borhood Groups '
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, 7.0 HOUSING OPPORTUNITY
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' 7.1 HOUSING OPPORTUNITY OBJECTIVE 7 ��
OBJECTIVE ALL RESIDENTS OF ST. PAUL WILL HAVE REASONABLE ACCESS
TO DECENT, DESIRABLE HOUSING IN A SUITABLE RESIDENTIAL
' ENVIRONMENT.
' Suitable housing opportunities are far more limited
for some households than for others, at times virtually
non-existent for some.
' Many of the groups for which housing opportunity is
limited are addressed in the foregoing chapters of this
plan: Lower-income households, rental households, lower-
' income large families, displaced households. Additional
concerns are identified here.
' 7.2 HOUSING OPPORTUNITY 7.2.1 EMERGENCY HOUSING
POLICIES
' POLICY O1
WHEN MAJOR EMERGENCY NEEDS ARE CREATED, SUCH AS IN THE
CONDEMNATION OF LARGE STRUCTURES WITH SERIOUS DEFICIENCIES,
' THE CITY WILL CONTINUE TO WORK WITH OTHER AGENCIES AND
COORDINATE EFFORTS TO ENSURE THAT NEEDS ARE MET AS
EFFECTIVELY AS POSSIBLE WITH AVAILABLE RESOURCES.
� Fire, loss of heatin or severe structural dama e,
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� severe family crises, financial crises, and evictions
' due to serious hazards discovered in housing code
inspections all bring about needs for emergency housing,
particularly for lower income households. Increases in
' housing code inspection activity brought about by recent
programs increase the need for emergency housing resources.
Stronger code enforcement and continued improvement efforts
' recommended by this plan probably cannot be carried out
without generating some additional emergency housing needs.
Presently the supply is limited in St. Paul and the need
is great.
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POLICY 02
, EFFORTS OF VARIOUS AGENCIES TO MAINTAIN A SUPPLY OF UNITS
FOR EMERGENCY NEEDS OF PARTICULAR CONSTITUENCIES WILL
CONTINUE TO BE SUPPORTED BY THE CITY, WHERE SUCH UNITS
CAN BE WELL MANAGED AND MADE AVAILABLE ON A CONTINUING
, BASIS FOR EMERGENCY NEEDS.
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A number of agencies in the city maintain limited emergency ,.
resources. Women's Advocates, a local shelter for battered
women, receives about 100 calls each month from women '
needing emergency housing. It is able to help only one
out of every nine callers. A coalition of community
groups has recently been formed in St. Paul to work towards
getting funds from the state legislature to provide low ,
cost emergency and transitional housing for women.
The St. Paul Urban League maintains limited emergency units,
never enough to meet the demand. The city' s housing t
information office also provides counseling and placement
for those in need of emergency housing. Because of the
housing shortage, "Emergency" housing has a tendency to '
become permanent when households which are ready to leave
have nowhere to go. When this happens, placement of those
in need becomes increasingly difficult.
Because emergency needs are particularly difficult to ,
meet in a time of housing shortage, a major part of the
city' s response to emergency housing needs has to be to ,
carry out the efforts to increase the total housing supply,
maintain lower cost rental units, and ensure that sub-
sidies are available and can be used in the most flexible ,
manner.
7.2.2 DISCRIMINATION '
POLICY 03 '
ENCOURAGE ENFQRCEMENT OF ST. Pl�UL'S HUMAN
RIGHTS ORDINANCE BY THE ST. PAUL DEPARI`MENT OF HUMAN
RIGHTS AND THROUGH ASSISTANCE PROVIDED BY OTHER AGENCIES
SUCH AS LEGAL ASSISTANCE OF RAMSEY COUNTY. EMPHASIZE '
PROMPT INVESTIGATION AND EFFICIENCY IN OBTAINING RELIEF
THROUGH CONCILIATION, CIVIL ENFORCEMENT AND CRIMINAL
PROSECUTION PROCEDURES. '
POLICY 04
PROMOTE AWARENESS OF HOUSING OPTIONS AND RIGHTS. '
A.CONTINUE THE AFFIRMATIVE ACTION PROGRAMS OF THE ST. PAUL
DEPARTMENT OF HUMAN RIGHTS, INCLUDING PUBLICITY '
CAMPAIGNS AND EDUCATIONAL PRESENTATIONS TO COMMUNITY
GROUPS.
B.PROVIDE AND SUPPORT INFORMATION, COUNSELLING �
AND REFERRAL SERVICES TO PERSONS FACING DISCRIMINATION
AND RELATED HOUSING PROBLEMS. THE CITY'S HOUSING
INFORMATION OFFICE IS ONE SUCH SERVICE. '
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' C.ENCOURAGE AFFIRMATIVE MARKETING OF SUBSIDIZED AND OTHER
HOUSING DEVELOPMENTS. CONDUCT SYSTEMATIC COMPLIANCE
' REVIEWS OF CITY-ASSISTED PROJECTS.
Housing discrimination does not appear to be a widespread
' problem in St. Paul . Nonetheless, sensitivity to possible
discrimination in housing remains a need. A total of 18
formal complaints, all related to rental housing, were
' filed with the St. Paul Department of Human Rights in 1978.
Ten of these complaints were based on race, four on
disability, two on national origin, one on race and age,
and one on race and sex. For several years there have
' been no complaints about discrimination in housing sales.
During 1975, 1976 and 1977, 75% of all housing complaints
' were based on race. Age discrimination accounted for 9%
and religious discrimination 5%. A number of formal
mechanisms exist to deal with housing discrimination.
' The St. Paul Department of Human Rights has enforcement
and affirmative action programs related to housing. The
city's Housing Information Office, the Mayor' s Complaint
and Information Office, and Legal Assistance of Ramsey
' County all handle housing discrimination cases. The
St. �aul Public Housing Agency has a nondiscrimination
clause in its Tenant Sel�ction Policy. And the St. Paul
1 Board of Realtors has adopted a Code of Equal Opportunity.
All have a strong track record in �ealing with discrim-
ination.
' The city is involved in tr�e legal aspect of hausing
opportunities through its Human Rights Ordinance. This
ordinance prohibits unequal treatment by reason of race,
' creed, religion, sex, color, national origin or ancestry,
age, or disability. Discriminatior� based on marital
status and status with regard to public assistance are
� also prohibited by state law.
' 7.2.3 HANDICAPPED HOUSEHOLDS
POLICY 05
' SUPPORT PROVISION OF BARRIER FREE HUUSING AS A PORTION
OF ALL NEW HOUSING DEVELOPED IN ST- PAUL.
' Housing needs of the handicapped household are very
difficult to ascertain. The 1970 census reported 15,393
handicapped persons in St. Paul , and the Metropolitan
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Council estimated that about 3% of the income eligible ,
one and two person households are handicapped. Finding
housing that meets the needs of the handicapped continues
to be an issue. Laws that require a set percentage of '
units in newly constructed buildings to be handicapped
equipped will insure that some of the need is met in
the future. Barrier-free units are provided in public '
housing, and the supply of these units is currently
being increased as part of the improvement program for
McDonough Homes. ,
POLICY 06
ENSURE THE AVAILABILITY UF REHABILITATION '
RESOURCES FOR BARRIER-FREE MODIFICATION OF EXISTING
DWELLING UNITS.
Finding appropriately designed housing for the handicapped ,
is a problem. Handicapped persons often do not have the
resources necessary to undertake the rehabilitation that �
would make their homes or apartments more accessible. A
number of programs are available that would help with such
rehabilitation, including the St. Paul Rehabilitation
Center, and the Minnesota Housing Finance Agency. Some ,
priority is given to accessibility improvements in re-
habilitation loans and grants administered by the city
by allowing consideration of these as basic health and �
safety requirements.
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