Jennifer R. Leonard and Alan Mallach
The mission of the Center for Community Progress is to create vibrant communities primarily through the reuse of vacant, abandoned, and problem properties in America’s cities and towns. Community Progress helps local and state governments seize the potential of these properties for the economic and social benefit of their communities. We help leaders advocate for and implement the policy changes to prevent abandonment and to reuse these properties.
Locations421 Garland Street, Suite AFlint, Michigan 48503
1001 Connecticut Avenue, NW, Suite 1235Washington, D.C. 20036
(877) 542-4842
communityprogress.net TRANSFORMING VACANT PROPERTIES IN
TODAY’S AMERICA
AcknowledgementsCommunity Progress wishes to thank Benjamin de la Peña and the Rockefeller Foundation for generously supporting the writing and production of this publication. Restoring Properties, Rebuilding Communities: Transforming Vacant Properties in Today’s America was written by Jennifer Leonard/Community Progress and Alan Mallach/Community Progress and The Brookings Institution, with additional writing and research by Ben Capraro/MK Communications, Mara D’Angelo/Smart Growth America, Sergio Ritacco/The Metropolitan Institute at Virginia Tech, and Joe Schilling/The Metropolitan Institute at Virginia Tech. Special thanks to those whose additional insights and editing improved the final product: the Community Progress team especially Dan Kildee and Courtney Knox, Anthony Armstrong/Buffalo LISC, Danielle Bober/Community Legal Resources, Michael Braverman/Baltimore Housing, Paul Brophy/Brophy & Reilly LLC, Frank Ford/Neighborhood Progress, Inc., Jason Hessler/ Baltimore Housing, Marilyn Katz/MK Communications, LISC Community Safety Initiative, Diane Silva Martinez/City of Dan Diego, Shamyle Nesfield/Community Legal Resources, Stacy Pugh/Slavic Village Development, Lisa Schamess, Michael Schramm/Case Western Reserve University, and Diane Sterner/Housing and Community Development Network of New Jersey. Design and production by BLANK-Design Communications.
ContentsPreface
Introduction
The Challenge and Opportunity 9 Asnapshot
Putting the Pieces Together: Understanding the Problem, Crafting the Solution15 It’stheeconomy17 Themunicipalfiscalcrisis18 Foreclosures:compoundingacomplexsituation20 Lawsandpublicpoliciesmakeadifference
Progress and Challenges23 Signsofprogress29 Arenewwaysofthinkingemerging?33 Anewfederalpolicyclimate
Framing a Policy Agenda for Vacant and Abandoned Properties39 Recommendations40 Tenprinciplestoguidethevacantpropertyagenda
Conclusion
2
5
45
7
15
23
39
September 2010
The Center for Community Progress was created
in 2010 to help local and state governments seize
the opportunity to reuse vacant and abandoned
properties for the economic and social benefit
of their communities. Including some of the
nation’s leading practitioners, policy architects,
and advocates, Community Progress is the
national resource for policy, information,
capacity building, training, and technical
assistance on the reuse and redevelopment of
vacant, abandoned, and problem properties.
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Pref
ace
CommunityProgressgrewoutoftwoorganiza-
tionsthatcameintobeingduringtheearlyyears
ofthepastdecade,theNationalVacantProperties
CampaignandtheGeneseeInstitute,which
broughtpublicattentiontotheissueofvacant
andproblempropertiesanddemonstratedthat
effectivepublicandprivateactioncanhavea
transformativeeffectontheproblem.
AsCommunityProgressstartsitswork,thispaper
sumsuptheexperienceoftheCampaignand
theInstituteinrecentyears,reflectingourunder-
standingofthemanyfactorsthatcauseproperties
tobecomevacantandabandoned,andputting
forwardanewbodyoftoolsandpolicyinitiatives
thatcommunitiescanusetoreturnvacantand
abandonedpropertiestoproductiveuse.We
highlightsomeofthesuccessfuleffortsofcommu-
nitiesaroundthecountry,andshowhowtheyfit
intoalarger,comprehensiveapproach.
Thepresentrecessionandforeclosurecrisis
threatencommunitieswithratesofvacantand
abandonedpropertiesmanyhaveneverseen
before.Ourexperienceteachesus,though,that
bold,swiftactioncoupledwithpolicyreforms
designedtofurtherthelong-termhealthof
communitiescanturnthistimeofcrisisintoone
ofopportunity.Achievingsuchatransformation
willrequirecollaborationbetweenthepublic
andprivatesectors,andathoroughunder-
standingofhowpopulationsandeconomic
activityareshiftingacrossAmerica.Itwill
requirereworkingstateandlocallawstoensure
thatmunicipalitieshavethetoolstheyneedto
acquire,manage,andreuselandandbuildings
tomakepossiblethequickreturnofvacantand
abandonedpropertiestousesthatbenefitthe
community.Thisreportsetsforthaseriesof
principles,andoutlinesthespecificrolesthat
differentlevelsofgovernmentanddifferent
privatesectorstakeholderscanplay,inmaking
thisopportunityareality.
TheCenterforCommunityProgressstands
readytohelpguidepolicymakersandcommunity
leaders,practitioners,anddevelopers,intheir
effortstoeradicatevacancyandabandonment
andforgethepathtobuildingstronger,healthier
Americancommunities.
Policymakers and community leaders are committing themselves to transforming the way we intervene to turn abandoned properties into vibrant places.
IntroductionAmerica’surban,suburban,andruralcommunitieshavestruggledfordecades
withvacant,abandoned,andproblemproperties.1Today’senvironmentis
unique,however,aspowerfulforces—mostnotablytheforeclosureandeconomic
crises—threatentoundodecadesofgrowth,development,andreinvestment
inourcommunities.
AspeopleacrossAmericafacethepresence
ofboarded-uphomesthatstrippropertiesof
theirvalueandownersoftheirequity,playnear
factoriesthatloomlifelesslyovertheirneighbor-
hoods,orwalkbyvacantstorefrontsononce-busy
commercialstreets,policymakersandcommunity
leadersareslowlycommittingthemselvesto
transformingthewayweintervenetoturnaban-
donedpropertiesintovibrantplaces.
Inthefaceofadramaticallychangedlandscape,
theyarestartingtorecognizethatourcommu-
nitieswillnotthriveifwecontinuetousethe
strategiesofthepast,goingprojectbyproject,
dealbydeal.Tostemtheflowofabandonment,
andreversethattrendinordertousetensof
thousandsofpropertiesinproductiveways,every
sector—thepublic,private,and“third”(nonprofit
andphilanthropy)sectors—willhavetoplaya
strategicandintentionalroletoreshapehow
wedealwithproperties,howweacquireland,
manageit,anddisposeofitforreuse.
Whileindicatorspointtocontinuedstressinthe
housingmarketandcontinuedelevatedratesof
foreclosuresandvacancyintheimmediatefuture,
wecanpointtoprovenexamplesofsuccessin
tacklingtheseissues.Asleadersadoptnewpolicies
tofurthercomprehensivecommunityrevitalization,
localstakeholdersareworkingtogethertoaddress
theirproblems,andbuildstrategiescapableof
leadingtolong-termsustainablechange.
Thisreportisgroundedinourexperienceworking
throughoutthecountrywithnonprofitorganiza-
tions,grassrootsleaders,publicofficials,andothers
whohavechampionedcomprehensivesolutions
tovacantpropertychallenges.Aswehavetravelled
totheircommunities,wehavelearnedfromthem
howlocalstrategiescancatalyzechange,andseen
howtheireffortscantransformcommunities.
Wehopethroughthisreporttoencourageall
thoseconcernedwiththisissuetobuildatruly
effectiveagendatoturnvacant,abandoned,
andproblempropertiesintoproductiveplacesin
ourcommunities,basednotonone-offdeal-
orientedtransactions,butontruesystemicreform.
Letusmakesurethattheuniquemoment
ofopportunitythatwehavetodayisnotwasted.
5
Behind every vacant property there is a story. The trick is to find that story and
address the underlying issues.
The ChallengeDespiteisolatedsuccessesandcommunityinnovations,vacantandunderused
propertiespresentalong-termchallengethatshowsnosignoflessening.Yetwith
rareexceptions,bothgovernmentsandprivateentitieshaveapproachedvacant
andabandonedpropertiesasacase-by-case,transactionalissue,ratherthan
lookedattheunderlyingsystemicissuesthatperpetuatethecycleofneglect.
Tobreakthatcycle,wemustfirstunderstandtheissue.Successwilldependon
ourunderstandingofwhatvacantandabandonedpropertiesare,whythey
becomevacant,andthedifferenttrendsthataffectcommunities.
Everyvacantpropertyisdifferent.AsSanDiego’s
ChiefDeputyCityAttorney,DianeSilva-Martinez,
says,“Behindeveryvacantpropertythereisastory.
Thetrickistofindthatstoryandaddressthe
underlyingissues.”Still,vacantpropertiesfallinto
alimitednumberofcategoriesalongdifferent
dimensionsthat,takenasawhole,arelikelyto
definetheirfuture.Thetypeofownership,property
type,physicalcharacteristics,geography,andmore
allaffecttheirpotentialforrevitalizationandreuse.
Whilesingle-familyhousesaccountforthelargest
number,vacantpropertiescanberesidential,
commercial,orindustrial,andtheinventoryof
large,potentiallyenvironmentallycontaminated
propertiesknownasbrownfieldsareoftenthe
mosttroublesomebecausetheymayrequire
remediationbeforereuse.
Notallvacantandabandonedpropertiesare
buildings.Oldercitiesaredottedwithlandwhere
homes,factories,orstoresoncestood;citieslike
FlintorPhiladelphiacontaintensofthousandsof
vacantlotswherebuildingsusedtobe.Although
generallyconsideredlessofanuisancethan
vacant,abandonedbuildings,unmanagedvacant
lotscanalsobeaproblem,becomingdumping
groundsandblightingtheirneighborhood.
Insomecitiesvacantpropertiescanbefound
inmostneighborhoods,onalmosteveryblock.
Thesecities,likeDetroitorYoungstown,
haverecentlyattractedintensenationalmedia
and Opportunity
7
attention.2Inothercities,likePhiladelphia
orNewHaven,theremaybeaseriousvacancy
probleminsomeneighborhoodsbutnotcitywide.
Andinyetothercities,oneseesonlyspot
abandonment,whereaparticularbuildinghas
beenabandonedforparticular,uniquereasons.
Whereavacantpropertyislocatedmay
determineitsultimatefate.Whileavacanthouse
inmanypartsofDetroitislikelytostayempty,
beabandoned,andultimatelytorndown,
asimilarhouseinLosAngelesmightreadilyfind
abuyerwillingtoinvestthemoneyneededto
putitbackintouse.Whilemanyvacantproperties
arelocatedinareaswherethereislittleor
nomarketdemandforhousingofanytypeor
condition,othersmaybelocatedinareaswhere
thereisdemand,butnotatpriceshighenough
tomakehomebuyerswillingtoinvesttheamount
Data show that the number of vacant properties measured by vacancy rates have risen steadily for over 40 years.
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ofmoneyneededtorestoreanabandoned
propertytosound,usablecondition.Stillothers
areeconomicallysoundpropositions,butare
hungupbylegal,procedural,orotherproblems.
Understandingthesedifferencesiscriticaltobeing
abletocomeupwithsound,effectivestrategies.
Finally,vacantandabandonedpropertiescan
bedistinguishedbytheirlegalstatus,whichcan
beasimportantinultimatelydeterminingthe
futureofapropertyasitstypeorlocation.
Whilenearlyallvacantbuildingsstartoutin
privateownership,eitherbyanowner-occupant
orinvestor,abandonmentandforeclosureoften
gohandinhand—eitherabandonmentleadsto
foreclosure,orforeclosureleadstoabandonment.
Thatcanmeaneithertaxforeclosure,wherea
municipalityorcountytakesthepropertyorputs
itupforsalefortheowner’sfailuretopayproperty
taxes;ormortgageforeclosure,wherethelenderor
mortgageetakesthepropertyorputsitupforsale
fortheowner’sfailuretomakemortgagepayments.
Intheendthough,thelegalstatusofaproperty
neverdrivesitsfuturebyitself—localmarket
conditions,coupledwiththelegalstatus,local
governmentpoliciesandthepracticesofthe
publicorprivateentityresponsible—theowner,
thelenderorthelocalgovernment—thatultimately
determinetheproperty’sfate.
A snapshotItisnoteasytoaccuratelyassessthenumberof
vacantorabandonedpropertiesinacityorregion,
letalonetheUnitedStates.However,datashow
thatthenumberofvacantpropertiesmeasuredby
vacancyrates—notjustabandonedproperties,
butalsothosepropertiesbeingactivelymarketed
forsaleorrent—haverisensteadilyforover
40years(Figure1).Althoughsomevacant
housingisneededinanyhousingmarket(houses
forsale,orapartmentsforrentareneededto
offerchoicestopeoplewhoaremoving),itiswhen
vacanthousesdonotreadilyfindbuyersor
tenantsthattheybecomeaproblem,andbegin
toturnintoabandonedproperties.
Homeownervacancyratestodayareapproaching
threepercent,whilerentalvacancyratesare
nearing11percent.Althoughthemajorityofthese
vacantpropertiesarenotproblemorabandoned
properties,thedramaticincreaseinoverall
Local market conditions, coupled with legal status, local government policies, and practices of the public or private entity responsible ultimately determines the property’s fate.
vacancies,particularlysince2000,islikely
tobeassociatedwithaparallelincreasein
abandonedproperties.
Corroborationforthisisfoundinthecensuscount
ofother vacantproperties.Other vacantproperties
arethosethatareneitherbeingofferedforsale
orrent,heldforoccupancy,orusedforseasonalor
migranthousing.Thisisascloseasurrogatefor
abandonedvacantpropertiesasthecensusoffers.
Between1970and2000,thenumberofother
vacantpropertiesmorethandoubled,going
fromjustunderonemillionunitsto2.3million.
Duringthesameperiod,thetotalnumberof
housingunitsintheUnitedStatesincreased
aswell,butonlybyroughlytwo-thirds,from69to
116million.Other vacantpropertiesmadeup
oneoutofevery50dwellingunitsinthecountry.
Accordingtothe2008AmericanCommunity
Survey,thenumberdoubledagainbetween
2000and2008,bywhichyear other vacant
propertiesnationallytotaled4.7millionoroneof
every28dwellings.3
Similartrendscanbefoundinmanycities.
Figure2showstheother vacantpercentagefor
fouroldercitiesinNewJersey.OnlyPaterson,
whichsawalargeimmigrantinfluxduringthis
period,failedtoseeasharpincreaseinthe
numberandpercentageofother vacantproperties.
Whileuntilrecentlythecommunitiesmostvisibly
affectedbyvacantpropertieswerefoundmainlyin
theoldercitiesandtownsoftheNortheastand
Midwest,thecombinationoftheforeclosure
crisisandtherecessionhasspreadtheproblem
acrossthecountry.Althoughitishardtopin
downpreciselyhowtheforeclosurecrisishas
affectedvacancyandabandonment,
UnitedStatesPostalService(USPS)vacancy
data4canoffersomeidea.
SOURCE OF RECESSION DATA: National Bureauof Economic Research, Inc.
AnnUAL renTAL AnD HOmeOwner VACAnCy rATeS FOr THe UnITeD STATeS: 1968–2009
1968 1972 1976 1980 1984 1988 1992 1996 2000 2004 2008
Fig 1
10
8
6
4
2
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RecessionRentalVacanciesHomeownerVacancies
Perc
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11TheUSPSdatashowadevastatingpicture,
particularlyfortraditionallyweakmarkets,
wherethenumberofvacantpropertiesishigh
andcontinuingtorise,asshowninFigure3
(followingpage).IncitieslikeFlint,Gary,
andDetroit,morethanoneoutofeveryfive
addressesisvacant.Inthesecities,thecombined
vacantandno-statdataareagoodreflectionof
abandonmentsincetheno-statdatalikely
includepropertiesthatareuninhabitableor
unabletobeoccupied.Withasingleexception
(Youngstownbetween2008and2009),the
percentageofvacantaddresseshasrisenevery
year in each of these cities. Theone-yeardropin
Youngstownisprobablytheresultofthemany
demolitionscarriedoutbythecitythatyear.
It is clear that, although vacancy conditions are less severe in Sunbelt cities, the data shows a trend that is much the same as in the distressed older cities.
SOURCE: US Census ofHousing.
OTHer VACAnT UnITS In new jerSey CITIeS: 1970–2000
Camden newark Paterson Trenton
Perc
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of a
ll Ho
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its
Fig 2
12
10
8
6
4
2
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1970198019902000
Figure4showssimilarlycombinedvacantand
no-statdataforfiveSunbeltcities.Inthesecities,
vacantorno-statpropertiesincludeseasonal
homesaswellashousesunderconstruction—or,
intoday’smarket,houseswhereconstruction
hasbeenhaltedbeforecompletion.Evenwith
thatqualification,itisclearthatalthoughvacancy
conditionsarelesssevere,thedatashowsa
trendthatismuchthesameasinthedistressed
oldercities.
SOURCE: US Postal Service. Data aggregates vacant and no-stat addresses.
VACAnT PrOPerTIeS In FIVe SUnBeLT CITIeS: 2006–2010
miami Tampa Phoenix Fort myers Las Vegas
Perc
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Fig 4
20062007200820092010
20
15
10
5
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SOURCE: US Postal Service. Data aggregates vacant and no-stat addresses.
VACAnT PrOPerTIeS In SIx OLDer CITIeS: 2006–2010
Detroit Buffalo Birmingham Flint Gary youngstown
Perc
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cant
Add
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Fig 3
20062007200820092010
20
15
10
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Onlylimiteddataontheamountofvacant,
abandoned,orunderutilizedcommercialand
industrialpropertiesisavailable.Aswiththe
residentialrealestatemarket,theUSPSevidence
indicatesthattheseinventoriesarelikewise
experiencingexceptionallyhighlevelsofvacancy
andabandonment.Figure5showsasteady
increaseinvacantandno-statbusinessaddresses
overthepastthreeyears5inbothRustbeltand
Sunbeltcities,withasimilartrajectory.
Whilenohistoricdatasetisavailablefor
comparison,thedatainFigure5isconsistent
withreportsofincreasedvacanciescomingfrom
thecommercialrealestateindustry.According
todatareleasedbytherealestateresearchfirm
ReisInc.,thevacancyrateatAmericanstripmalls
reached10.6percentinthefourthquarterof
2009,aneighteen-yearhigh,andshoppingmall
vacancywasthehighestinatleast10years,
reaching8.8percent.6Atthesametime,
thevacancyrateofcommercialofficespace
intheU.S.roseto17.2percent,alevelunseen
since1994.7
Vacancyratesforindustrialpropertiesinmany
partsofthecountryhavealsoreachedpeak
levels,withChicagoat12.2percentinthefourth
quarterof2009(thehighestin19years);8
WashingtonD.C.at15.8percentinthefourth
quarterof2009(thehighestin16years);9andthe
TwinCitiesat16.7percentinthefirsthalfof2010
(thehighestintenyears).10
SOURCE: US Postal Service. Data aggregates vacant and no-stat addresses.
VACAnT BUSIneSS ADDreSSeS: 2008–2010
Buffalo Birmingham Flint youngstown miami Tampa Phoenix
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Fig 5
20082009201040
30
20
10
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while all of the factors leading to abandonment are related, market or economic forces are usually the ones that most powerfully determine the outcomes of vacant properties.
Understanding the Problem,Crafting the SolutionAbandonmentrarelyflowsfromasinglecause;instead,itcanbetriggeredby
economicandpopulationshifts,regionalmarketforces,personalfinancialproblems,
orqualityoflifedecisions.Existingobsoleteorineffectivelegalsystemsoften
exacerbatethesetriggersbymakingithardforproperties,onceabandoned,
toreturnproductivelytothemarket.
It’s the economyAsJamesCarvillefamouslysaid,“it’stheeconomy,
stupid.”Whileallofthefactorsleadingtoaban-
donmentarerelated,marketoreconomicforces
areusuallytheonesthatmostpowerfullydeter-
minetheoutcomesofvacantproperties,whether
theywillbereusedorabandoned,andperhaps
ultimatelydemolished.Abandonmentreflects
economicanddemographicshiftsinAmerican
society,includingdisinvestmentinoldercities,
migrationfromtheMidwesttotheSunbelt,lossof
manufacturingintheRustbelt,andinrecentyears,
theforeclosurecrisisandtherecessionthathave
ledtomillionsofAmericanslosingtheirhomes.
ManyofAmerica’soldercitieshavebeenlosing
bothpopulationandjobssincethe1950sand
1960s,astheirpopulationandbusinessactivity
movedtothesuburbsandtogrowingSunbelt
regions.Citiesthatweredependentonmanufac-
turing,likemostintheindustrialMidwest,were
particularlyhard-hit,astheirindustriescontracted
ordisappearedentirely.11Thesecitiesinclude
majoriconiccitiesofAmericanhistorylikeDetroit
andPittsburgh,aswellashundredsofsmaller
communities.Whileatfirst,thesuburbsofthese
citiesgrew—largelybyabsorbingpeopleandfirms
fromtheircentralcities—inrecentyears,many
suburbanareas,particularlytheinneror“firstring”
suburbs,alsolostjobsandpopulation.Between
1970and2000,CuyahogaCounty,whichcontains
Cleveland,lostnearly20percentofitspopulation.
Sevenofitssuburbancommunitieseachlost
morethan20percentoftheirpopulationduring
thisperiod.
Somecitiesthatlostpopulationandsawwide-
spreadabandonmentinthe1970sand1980s
begantogainbackpopulationinthelasttwo
decades.TwogoodexamplesareNewYorkCity
Putting the pieces together:
15
andBoston,bothofwhichhaveexperienced
dramaticeconomicturnarounds.Bothhadlarge
numbersofvacantpropertiesinthe1970sand
fewtoday.
Othercitiesandsuburbs,though,havecontinued
tosteadilylosepopulationandjobs.Theseplaces
haveavastoversupplyofhomes,apartments,
stores,andfactoriescomparedtotoday’sdemand.
Simplystated,therearenotenoughpeoplewho
wanttoliveinthesehomesandapartments,or
operatebusinessesinthesestoresandfactories
(orconvertthemtootheruses)touseupthe
supply.Thesecommunitieswillnotbeabletofind
usersformanyofthepropertiesthatwerebuilt,
whenthesecitiesweregrowingandthriving.
Aspropertyownersrealizethattheycan’tfind
buyersfortheirproperties,oriftheycan,thatthose
buyerscan’taffordtopayenoughtocovertheir
costs,theyabandontheirproperties.Asmostof
thesecitiescontinuetolosejobsandpopulation,
theywillhavetorecognizethattheyareunlikely
toreturntothedaysofthe1950s.Whilewell-
designedandconsistentlyenforcedlegalsystems
canhelpmaintainthepropertiesandminimizethe
harmtheydotothecommunity,aweakmarket
canonlybegintomaintainvalueswhenitstabi-
lizesatapopulationlevelthatcanbesupported
byitseconomicactivityandpopulationtrends.
Shrinkingcitiesinweakmarketregionswillhaveto
fundamentallyrethinkhowtheyusethelandand
buildingsbeforetheirrealestatemarketsarelikely
toreturntovitality.
Physicalobsolescenceiscloselyrelatedto
thegeographicfactorsofweakmarketdemand.
Manypropertiesthatmetdemandin1910,such
assmallrowhousesinPhiladelphiaormulti-story
factoriesinCleveland,arenolongerinteresting
eithertohomebuyersormanufacturers.
Thesepropertiesaredisproportionatelylocated
inAmerica’soldercities.Whiletheyaresometimes
convertedtootheruseswhenlocatedinastrong
marketcitylikeBoston,theylanguishelsewhere.
Joblossesalsoaffectcommunitiesduetoa
resident’sinabilitytomaintainahomeingood
condition,paytherentormortgage,andpay
thepropertytaxes.Althoughtherearesignsthat
economicgrowthisresumingnationally,the
increaseismodestandtheunemploymentrate
remainsatdangerouslyhighlevels.Whilethe
nationalunemploymentrateinthespringof2010
hoversclosetotenpercent,itisaround15percent
intheFlintandDetroitareas,18percentor
higherinmuchofCalifornia’sCentralValley,
and25percentinthecityofDetroit.
Ifsignificantprivate-sectorjobgrowthdoes
nottakeplacesoonandhighunemployment
continues,asexpertsfearitwill,communities
aroundthecountrywilldestabilizefurther.
Thedestabilizationofthehousingmarketthat
hastakenplace,andiscontinuing,islikelyto
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slowdowntheeconomicrecovery.AsFederal
ReserveChairBenBernankenotedinJune
2010,housingactivitycontinuestobe“weighed
down,inpart,byalargeinventoryofdistressed
orvacantexistinghouses.”12
The municipal fiscal crisisTheheadlinesinthisrecessionhavebeen
aboutjoblossandfactoryclosings,butanequally
significantcrisisistheerosionofthefiscalhealth
ofAmerica’sstatesandcities.Theburstingofthe
realestatebubbleandtherecessionhasledto
anunprecedented,simultaneousdropinallthree
oftheprincipalsourcesofpublicrevenue:
incometax,salestax,andpropertytaxreceipts.
Thislosshastriggeredmassivedeficitsfor
stateandlocalbudgetsacrossthecountry,
withdireconsequences.TheNationalLeague
ofCitiessurveyeditsmemberstofindthat“7in
10cityofficialsindicatedtheyareresponding
totheeconomiccrisisbymakingpersonnelcuts,
includinglayoffs,hiringfreezesandfurloughs.
Manycitiesarealsocuttingpublicsafetyspending
andhealthcarebenefits.”13Meanwhile,hard-
pressedstatesarecuttingbackontheassistance
theyonceprovidedtheirlocalgovernments.
Eventhoughtherecessionmaybeending,asthe
NLCreportnotes“citybudgetshortfallsare
predictedtobecomemoresevereastaxcollec-
tions,whichlagtheoveralleconomy,catchup
witheconomicconditions.”
Fromtheperspectiveofabandonedproperties,
thisfiscalcrisiscomesataparticularlydifficult
time.Asthenumberofabandonedproperties
grows,andmoreneighborhoodsaredestabilized
byforeclosuresandvacancies,citiesneedtobe
abletoaddresstheseissuesinordertorebuild
confidence,preservesoundneighborhoods,and
keeponce-vitalneighborhoodsfromcomplete
collapse.Instead,citiesarebeingforcedtolayoff
Cities are being forced to lay off building inspectors, firefighters and police officers, and cut back on critical activities such as property maintenance, nuisance abatement and demolition...these actions may allow these problems to get worse, compromising many communities’ future.
buildinginspectors,firefighters,andpolice
officers,andcutbackoncriticalactivitiessuch
aspropertymaintenance,nuisanceabatement,
anddemolition.Recognizingthatcitieshavelittle
choiceinthematter,thefactremainsthatthese
actionsmayallowtheseproblemstogetworse,
compromisingmanycommunities’future.
Inseveralcities,non-profitfoundationsand
organizationshavetriedtofillthegap,buttheir
resourcesarefartoolimitedtooffsetthemassive
lossinstateandlocalresourcesbeingfelt
aroundthecountry.
Foreclosures: compounding a complex situationTherecentwaveofmortgageforeclosuressince
2007hashadadevastatingeffectonmany
regionsacrossthecountry.Citiesandtownswith
formerlystronghousingmarketsandthosewith
long-termweakmarketsalikearestrugglingwith
thequestionsofhowtomaintainstableneigh-
borhoodsinthefaceofwidespreadvacantand
foreclosedhouses.Webelievethatmortgage
foreclosuresarethemainreasonthatvacancies
haveincreasedsoconsistentlyduringthepast
fiveyears.Whileforeclosuresdonotalwayslead
toabandonment,theycantriggeritinmany
differentways:
Manypropertyowners,whentheyreal-izetheywilllosetheirproperty,abandonit,simplywalkingawayevenbeforetheforeclosureactuallytakesplace.
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Whentheforeclosuresale(sheriff’ssaleortrusteesale)takesplace,iftheownerisstilllivingintheproperty,thelenderalmostalwaysimmediatelyevictstheowner,renderingthepropertyvacantandatriskofvandalismorarson.
Insomeweakmarketareas,thelendermaynoteventakecontroloftheproperty,aphenomenonsometimescalleda“bankwalkaway.”
Duringtheforeclosureprocess,iftheproperty
isabandoned,itgoesintoasortoflegallimbo:
theownerisnolongeraround,butinmostcases
thelenderhasnoresponsibilityfortheproperty
untiltheforeclosureisfinalandthedeedis
recorded.Inmoststates,thisprocesscantake
morethanayear;insomeittakesmorethantwo
years.Meanwhile,thepropertiesmaydeteriorate
andbecomeablightonthecommunity.
Onceapropertyistakenbythelender,itbecomes
whatisknownasREO(Real-Estate-Owned)
property.Itmaybeputupforsalethroughalocal
broker,oritmaybesoldbythelenderaspartof
abulksaletoaninvestor.Eitherway,theoutcome
isuncertain,andthereisnoassurancethatthe
propertywillbemaintained,orwillendupin
responsiblehands.
Theshort-termoutlookisnotpositive.Althoughthe
numberofREOpropertiesappearedtostabilize
during2009,manyexpertsbelievethatoverthe
comingyearortwothenumberofREOproperties
willincreasedramaticallyasamassive“shadow
inventory”ofpropertiesindefaultorforeclosure,
butnotyetforeclosedupon,movesthroughthe
processandintoREOstatus.
However,marketforcesimpactoutcomesand
foreclosuresdonotalwaysleadtoabandon-
ment.Manypropertiesareboughtandput
backtouse,eitherbyhomebuyersorinvestors,
particularlyincommunitieswherepeople
expectpropertyvaluestobeginrisingagainin
thenextcoupleofyears.
InrelativelystrongmarketareassuchasPhoenix
orLasVegasthemarketisabsorbingmuchofthe
REOinventory,principallythroughtheactivitiesof
absenteeinvestors.Thismaynotlast.Marketrents
aredroppingintheseareas,makingthemless
attractivetoinvestors,while—asaresultoftheinflux
ofrentalsingle-familyhomesontothemarket—
multifamilyvacancieshaveincreasedtothepoint
wheremanygardenapartmentcomplexesmaybe
atriskofabandonment.Asimilarproblemafflicts
SouthFlorida,wherethecollapseofcondominium
associationsasaresultofthelargenumberoffore-
closedunitshasraisedquestionsaboutthesurvival
ofentirecomplexes.Afurtherriskfactorinthese
areasisthepresenceofthousandsof“underwater”
homeowners,whoowemoreontheirmortgage
thantheirhomesareworth.Iflargenumbersof
theseownersengagein“strategicdefault,”that
couldfurtherdestabilizethemarketintheseareas.
Althoughforeclosuresareoccurringeverywhere,
recoverywilltakedifferentforms.Inmanyweak
marketcitiesandregions,foreclosureshave
compoundedlong-termabandonmentproblems,
oftenundoingyearsofprogressmadebycities
andCDCsinturningaroundonce-disinvested
neighborhoodsandrestoringabandoned
propertiestouse.Thesecitiesareconfronting
theneedforasustained,long-termeffortto
rebuildtheshatteredconfidenceofhomebuyers
andinvestorsinthevalueoftheirpropertiesand
thestabilityoftheirneighborhoods,withoutwhich
neighborhoodsdestabilizedbyforeclosuremay
neverrecovertheirvitality.Eveninstrongmarket
areas,manydestabilizedurbanneighborhoods
willtakeyearstorecoverfromtheravagesof
theforeclosurecrisis.
Laws and public policies make a difference Haltingandreversingthecycleofabandonment
requiresthoughtful,deliberateinterventionbased
onaclearunderstandingoftheuniquecombina-
tionoffactorsaffectingvacantandproblem
properties,andthetoolsavailabletodealwiththem.
Someoftheinterventionsundertakenrecentlyto
tackletheproblemaredescribedlaterinthis
report.Whetherdealingwithrecentlyforeclosed
propertiesorlong-abandonedindustrialparcels,
manyoftheseinterventionshavereliedon
transactionaleffortsthathaveshownsome
levelofsuccess.Buttoaddressthescaleofthe
challengewefacetoday,weneedtolookmore
closelyatthepoliticalandlegalsystemsthat
governpropertyandlandreuse.
Manydifferentlegalsystems,primarilydefinedby
statelawandlocalordinances,determinehow
propertyistreated,fromzoningandbuildingcodes
toforeclosureprocedures.Manyofthoselaws
actuallycontributetotheepidemicofabandonment,
astheyneitherpreventforeclosuresorabandon-
mentnorfostertheefficientreturnofpropertytothe
marketortoaresponsibleholdingentity.
Governmentpoliciesandpracticescanalsoexacer-
batethechallengesposedbyhighratesofaban-
donment.Localgovernmentsthatselltaxliensand
tax-foreclosedpropertiestospeculatorsratherthan
holdingthemforfutureusearemortgagingtheir
futureforshort-termgain.Theproblemisalso
To address the scale of the challenge we face today, we need to look more closely at the political and legal systems that govern property and land reuse.
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compoundedbyadiffusionofresponsibility.
Inmanylocalgovernments,responsibilityforthe
decisionsandactionsthataffectproperties—from
codeenforcement,policing,anddemolitionto
planning,acquisition,taxcollection,disposition,
andprojectfinancing—isspreadacrossmultiple
agenciesthatrarelycoordinatetheirefforts,and
oftendon’teventalktooneanother.Commentator
MarkAlanHugheswrotethat“theresponsibilityfor
vacantpropertyinPhiladelphiaisdividedamong
15separateagencies.”14Tenyearslater,thecity
isonlynowmobilizingtodevelopacoordinated
vacantpropertystrategy.
Zoningandbuildingcodescanmakethereuseof
abandonedpropertiesburdensome.Antiquated
zoningcodesrequiretime-consumingandexpen-
siveprocessesforevenminorchangesinuse,while
strictbuildingcodesdiscourageself-helpimprove-
mentandsweatequity.Stateandlocallanduse
regulationsgenerallyfavorbuildingongreenfield
sites,buildingnewpublicly-financedinfrastructureat
themetropolitanperipheryandexacerbatingthe
costsofvacancyinthecenter.
Statetaxforeclosurelawsarealsoproblematic.
Designedtomaximizeshort-termrevenuestothe
cityorcounty,theyoftendisregardthecommu-
nity’slong-termfiscalorsocialhealth.Ratherthan
beingameansofrescuingpropertiesfrom
abandonment,theselawsoftencompoundthe
problem,addingtotheinventoryofabandoned,
dilapidatedproperties.
Federalprogramsandpolicieshavealsocontrib-
utedtotheproblem,fromthedayswhenurban
renewalunderminedmanystill-vitalcommunities,
andinterstatehighwayshelpedacceleratethe
movementtothesuburbs,totoday.Otherfederal
programs,liketheLowIncomeHousingTaxCredit
program,continuetoencouragedevelopmentof
newhousingunitsinneighborhoodswitha
surplusofaffordablerentalhousing,increasing
theriskofabandonmentforthousandsofprivately
ownedrentalproperties.
Shifting perceptions about vacant properties create the opportunity to turn
scattered, piecemeal approaches
into a comprehensive strategy.
ProgressAsofmid-2010,thegrowingnumberofvacantandabandonedpropertiespresents
adauntingchallengetothenation,andpowerfuldynamicsintheeconomy
threatentomakethesituationworseinthecomingyears.Yet,thereiscauseforhope.
Forthefirsttimeinmanyyears,thefederalgovernmenthasbeguntolookseriously
attheseissues,whiletheforeclosurecrisishasunleashedawaveofcreativityatthe
stateandlocallevels.Statelegislatureshaveenactedvaluablepolicyreforms,while
citygovernments,CDCs,foundations,andothershavealltakenupthechallenge.
Whilethecomingyearswillbedifficult,theywillalsobeyearsofopportunity.
Successfuleffortsacrossthecountryshowwhat
communitiescandotopreventabandonmentand
restorevacantpropertiestoproductiveuse.After
yearsofeffort,wearelearninghowbesttorespond
tothechallengesposedbyvacantandabandoned
propertiesatthelocallevel.Thetimecallsforthese
effortstotakeonalarger,moreambitiousscale,
andshiftingperceptionsaboutvacantproperties
createtheopportunitytoturnscattered,piecemeal
approachesintoacomprehensivestrategythat
linksfederal,state,andlocallawsandpractices
withprivateandnon-profitinitiatives.
Inthissectionwewillbrieflysketchsomeofthe
successfuleffortsthathavelaidthegroundwork
forthiscomprehensivestrategy,aswellasthe
reasonswebelievethatthisisatimeofhope,
ratherthandespair.
Signs of progressStatelegislatureshavetakenimportantstepsto
changethelawssurroundingpropertyacquisition
anddisposition:
In2003,Michiganenactedpioneeringlegislationauthorizingcountiestocreatelandbankauthoritiesandgivingthoseauthoritiesstrongtoolstoacquire,maintain,andtransferownershipoftaxforeclosed,vacantproperties.Today,followingtheleadofGeneseeCounty,thereareover30countylandbanksin
and Challenges
23
Minneapolis
In the early 2000s, the neigh-
borhood surrounding Frank-
lin Avenue in Minneapolis
was one of the most blighted
and crime-ridden areas of
the city. The area was better
known for nuisance busi-
nesses or illegal activities—
such as adult bookstores,
open drug dealing, and pros-
titution—rather than meeting
basic residential needs, like
a shop for groceries or medi-
cine. Efforts to redevelop the
community were met with
skepticism, the prevailing
wisdom being that no legiti-
mate businesses would take
a chance on the troubled
neighborhood.
AlocalCDC,theAmericanIndianNeighborhoodDevelopmentCorporation(AINDC),sawopportu-nitywhereotherssawnone.WhenAINDCExecutiveDirector,TheresaCarr,discoveredthatalocalstorewasafrontforprostitution,she“realizedthat,insomerespects,realestateownershavemuchmorepowerovercrimethanthepolicedo.”
Fromthenon,theAINDCsettowork,prioritizingsafetyandcrimereductionaskeyelementstoitsredevelopmenteffort.
TheAINDCstartedbyforgingapartnershipwiththepolicedepart-mentandemphasizingthesafetythatwouldcomewithbricksandmortardevelopment.Buildingontheideathatbusystreetsaresaferstreets,theAINDCsoughtbusi-nessesthatwouldstayopenpast5p.m.WhentheFranklinStreetBakery,aneighborhood,24-hourindustrialbakery,wassearchingforanewlocation,includinginsafersuburbanneighborhoods,theAINDCpersuadedtheownersthatthejobsitcouldbringtothecommunitywhereitsemployeeslivedwouldhaveasignificantandpositiveimpactontheneighbor-hood.Thebakerythentookoveranabandonedgasstation—acrimehotspotthataccountedformorethan500policecallsinasingleyear—andtwoneighboringproper-ties.Tofurthermaketheareapedestrianfriendly,theAINDCdidawaywiththelong,darkcorridorsthatcharacterizedthearea’stroubledshoppingcenterandreplacedthemwithaspacious,welllightedplazawithafountain,publicartandambientmusic.
TheAINDC’sstrategyhadenor-mouspayoffs.ThecombinedeffectsofthebakerytakingachanceonexpandingonFranklinAvenueandtheAINDC’sfocusondesigningforsafetycatalyzedtheresurgenceofthecommercialdistrictthatnowboastsahealthclinic,florist,grocerystore,drugstore,policesafetycenter,andpopularcoffeeshop.Theinvestmentsmadebythesenewbusinessesledtoincreasedfoottrafficandlowerlevelsofcrime,andthedecreaseincrimehasresultedinaboontoeconomicandcivicactivityinthisoncetroubledneighborhood.
Progress in Minneapolis, MN
Promoting economic Development through Crime Prevention
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Michigan,aswellasastatewidelandbankandamunicipallandbankinDetroit.
OtherstatesarefollowingMichigan’sleadinintroducinglandbanklegislation.Ohiofollowedsuitin2009,authorizingtheestablishmentofalandbankauthorityinCuyahogaCounty,thelargestcityofwhichisCleveland.Thatbody,theCuyahogaCountyLandReutilizationCorporationhastakentheleadroleinthecounty’ssuccessfulNSP2applicationandin2010,thestateexpandeditslegislation,authorizingcountieswithmorethan60,000residentstocreatelandbanks.LandbanklegislationhasalsobeenrecentlyintroducedinNewYorkandPennsylvania.
In2009,Texasenactedanewlawallowingcommunitygroupstofilereceivershipactionsagainstdangerouspropertiesandtotransformthepropertiesintodecent,safe,andaffordablehousing.Thelawalsohelpscommunitiesandcitiesobtaincleartitletotheproperties.Similarly,in2009,Pennsylvaniaenactedastateconservatorshiplaw,givinglocalgovern-mentsandnon-profitsapowerfultooltogaincontrolofneglected,abandonedproperties.NewJerseyandOhioalsohavestrongvacantpropertyreceivershiplaws,whilearecentMassachusettscourtdecisionhasallowedthatstate’sreceivershiplawtobeusedforvacantaswellasoccupiedproperties.
• In2009,NewJerseypassedinnovativestatelegislationtoholdlenderswhoinitiateforeclosureactionslegallyresponsibleformaintainingthepropertiesfromthebeginningoftheforeclosureprocessiftheyareabandonedbytheirowners.
AnewparadigmforrevitalizingAmerica’solder
industrialcitieshastakenhold.SinceYoungstown,
OhiofirstbroketheicewithitsYoungstown2010
plan,moreandmorecitieshavebeguntoplan
theirfuturearoundtheideathatasmallercitycan
beastronger,healthier,andgreenercity:
Rochester,NewYorkhasannouncedProjectGreen,“aboldplanthatwouldchangethelookandfeelofRochesterbyreplacingvacantpropertieswithvastswathsofgreenspace.”
UndertherubricofRe-ImaginingaMoreSustainableCleveland,apartnershipofgovernment,foundations,universities,andnon-profitorganizationshascometogethertofosternewwaysofusingCleveland’svacantland,whileknittingtogetherthefabricofitsviableneighborhoods.
ThecityofDetroit,undertheleadershipofitsenergeticnewmayorDaveBing,hasformedapartnershipwithlocalfoundationsandotherstodevelopanewstrategyforthatcity,integratinglanduse,economicdevelopment,transportation,andschools,basedonthesmaller-cityparadigm.
Newinformationtechnologiesarealsohelping
localactorsaddresstheirpropertyissuesmore
effectively:
NEOCANDO,apropertyinformationsystemforNortheasternOhiobasedatCaseWesternReserveUniversity,hasenabledorganizations
This is a time of hope, rather than despair.
Cleveland
Although the steady loss
of population in Cleveland
is one contributing factor
to the substantial level of
vacant properties in the city,
the foreclosure crisis, which
started earlier here than in
many other communities,
threatens to abrogate
decades of success and
investment in the city’s
hardest hit neighborhoods.
ThelevelofabandonmentfoundinClevelandtodayisunprecedented,eventomanycommunitydevelop-mentveterans.However,commu-nitydevelopersinClevelandhavealonghistoryofdevisinginnovativeresponsestodifficultchallengesandtheyareworkingwithstakeholdersinthecitytoformulateacoordinatedresponsethateffectivelytargetsandleveragesavailableresources.
Toovercometheobstaclestostabilization(troubleacquiringREOandpost-REOproperties,presenceofmultipleblightedpropertieswithinaneighborhood,andworrythatnearbyoccupiedhomesmaybecomevacant),anumberofstakeholderscreateda“neighbor-
hoodstabilizationteam”—localintermediary,NeighborhoodProgressInc.,CaseWesternReserveUniversity,14CDCs,andEmpoweringandStrengtheningOhio’sPeople(ESOP,alocalforeclosurepreventionagen-cy)—toregularlymeetandsolicitinputfromCDCsworkingdirectlyinthefield.Theeffortisacomprehensiveapproachaimedatbothendsofthestabilizationchallenge—preventingabandonmentthroughstrategiessuchasforeclosurepreventionandconvertingabandonedpropertiesforproductiveuse.Theteamaggres-sivelyemploysallavailablefederal,state,andlocalresources.Thiscustomizedapproachsurpassesthescopeofmuchoftheworkconsid-eredneighborhoodstabilizationtoday,applyingstrategiesandactivitiesthatmaynotbeeligibleforfundingthroughthefederalNeighbor-hoodStabilizationProgram.Thesecriticalyetineligibleactivitiesincludeacquiringprivatelyownedproperty,commencingnuisanceabatementandreceivershipproceedings,andaggressivelyenforcinghousingandbuildingcodes.
TheteamholdsmonthlymeetingswithCDCsinorderto:
Identify,map,andresearchpoten-tialacquisition/renovationtargets
Identifyandmapblightedpropertiesthatthreatentoundermineexistingassetsandrenovationprojects.
Identifyandmapoccupiedhomesatriskofforeclosureandabandonment.
Prioritizeandcategorizedestabilizingproperties.
Linkpropertieswithanappropriateintervention.
Organizethestabilizationwork–assigningtasksandreportingback.
TrackoutcomesthroughNEOCANDO.15
Duringtheteammeetings,eachCDCmapsandjuxtaposesitsassetswithNEOCANDOdataaboutpar-ticularneighborhoods’destabilizingfactorsincludingat-riskmortgages,foreclosures,upcomingforeclo-suresales,bankorinvestor-ownedproperty,delinquenttaxes,andvacancies.CaseWesternUniversityupdatestheNEOCANDOdatausedbytheteamregularly,sotheteamcanspendtimemakingstrategicinterventiondecisionsratherthancollectinginformation.Theteammeetswithindividualneighborhoodgroupstoidentifydestabilizingforcesthatmayharmcommunityassetsandtotargetlimitedresourcesnearneighborhoodanchors.
Progress in Cleveland, OH
Building a neighborhood Stabilization Team effort
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inClevelandandelsewheretotargettheirforeclosurepreventionandneighborhoodstabilizationefforts.
DrivenbytheneedsofChicago’sNeighbor-hoodStabilizationProgram,MercyPortfolioServicesdevelopedCommunityCentral,asystemtomanagetheprogram.CommunityCentralisapowerfulweb-basedtoolthatMercyusestorunareuseprograminvolvingthousandsofvacantandforeclosedproperties.Mercyislicensingthesystemtoothercitiesandnon-profitorganizations.
PolicyMap,developedbyTheReinvestmentFund,providesawiderangeofdataandmapsatthecensustractlevelthroughauser-friendlyinterfacetosupportlocalplanningandresearchefforts.
Anumberofotherlocalinitiativeshaveemergedto
strengthennuisanceabatementandcodeenforce-
mentoutcomes,andleveragemunicipalservices
andprivateresourcestosupportredevelopment:
TheCityofChulaVista,Californiaenactedalocalordinancerequiringlenderstotakecareofvacantpropertiesduringforeclosure.16Thecity’sordinancehasbecomeamodelforasmanyas100otherlocalitiesaroundthecountry,mostlyinCaliforniabutalsoinotherstatessuchasFloridaandConnecticut.
TheCityofClevelandhasinitiatedaninnovativeprogramthatmakesthecity’scommunitydevelopmentcorporationsitscodeenforcementpartnerstoleveragelimitedmunicipalresources.
WorkingwiththeNST,theSlavicVillageDevelopmentCDCleveragedinvest-mentinoneoftheirnewprojects—a90-unitsinglefamilyhousingcomplexlocatedonanabandonedindustrialsite—torevitalizethesurroundingarea,whichwasalsoadjacenttoaregionalbank’snewheadquarters.SlavicVillagehadidentifiedthethree-blockareawitha40percentvacancyrateinordertomutuallystrengthenthesenewanchorsandthoseblightedblocks.WiththehelpoftheNST,SlavicVillagebeganaproperty-by-propertyanalysisanddevelopedstrategiesforeach.TheCDCacquired27ofthevacantpropertiesandrehabbedthehomes(offeringsomeforsaleandsomeforlease),demolishednearly40properties,landscapedvacantlots,filedreceiver-shipsuitstoeliminatenuisancesandofferedhomerepairloansandlightpoststotheexistingresidents.
Lessthanthreeyearslater,therehabbedpropertiesarealmostcom-pletelyoccupied;greenspacesflourishwhereoncetherewerevacantandabandonedlots;thedirtyindustrialsiteisgone;anoldraillinewasreplacedwithabiketrail,andacommunitygardengreetsvisitorsandresidentsalikeontheneighborhood’smainavenue.Theseeffortsstabilizedthemarketinanareathatwasonceseverelydistressedandareahallmarkoftheresultspossiblebyworkingtogether.
Flint
Policymakers and prac-
titioners examining the
successes of the Genesee
County Land Bank often
focus on the fiscal impact
of its programs and large-
scale initiatives.
Thedemolitionandcleanandgreenprograms,forexample,haverecentlyshownthattogether,a$3.5millioninvestmentreturnsanimpressiveincrease—over$109million—onsurroundingpropertyvalues.AnothervictorycomesfromtheLandBankCenter’srehabonSaginawStreet,a$4.1millionmixed-useinvestmentthatlaunchedrevitalizationoftheblocksadjacenttotheUniversityofMichigan’scampus:followingthesubstantialrehabofthelandbankbuilding,sevenvacantbuildingswererehabbedprovidingapproxi-mately150newresidentialunitsand60,000squarefeetofleasablecommercialspace;approximately$60millionwasinvestedintheblocksimmediatelyaroundtheLandBankCenter;inSeptemberthelong-vacantDuranthotelwillopenasnewstudenthousing.
Butlessknown,andequallyimpor-tant,areindividualtransformative
outcomesoftheGeneseeCountyLandBankefforts.Thestoryoflife-longFlintresident,RogerMimms,highlightstheimportanceoftheseimpacts.
Mr.MimmsremembershowtheFlintcommunityhelivedinforover20yearschangedashisneighborsmovedorpassedaway.Asabsenteeownersandothernegativeinflu-encestookoverandreplacedhisfriends,hecouldn’tsleepwellinhisrentedhomeandfeltlikeheneededaweaponnearbyforsafety.Likehomesinsimilarneighborhoodsacrossthecountry,theownerofthehouseabdicatedresponsibilityforitsupkeepandMr.Mimmscontendedwithhealthandsafetynuisancesincludingmiceandroaches.
Whentheownerignoredanothercriticalresponsibilityofpropertyownershipandfailedtopayproper-tytaxesin2003,Mr.Mimms’shousewentthroughthetaxforeclosureprocessinitiatedbytheGeneseeCountyTreasurer,andbecamepartoftheinventoryownedbytheGeneseeCountyLandBank.That’swhenMr.Mimms’slifechanged.
Mostoften,thepropertiestransfer-ringtotheGCLBarevacantlotsoremptybuildings.Butapproximately
14percentofthebuildingsthatactuallygothroughforeclosureareoccupied,andthelandbankstafffirstinspectsthepropertytoensureitmeetscodeandthendetermineswhathappensnext,includingdeter-miningiftheoccupantcouldenterarent-to-owncontractorifitcanbealandbankrental.Thelandbankoperatesarentalmanagementprogramofabout100propertiesthroughoutthecity.
BecauseMr.Mimms’shomewasuninhabitableandinaneighbor-hoodthatwasbecomingaban-doned,thelandbankpropertymanageraskedifhewouldcon-sidermovingintoanotherlandbankproperty.AlthoughMr.Mimms’sneighborhoodandhousewereunsafe,itwasthehomeheknewandinitiallyhewantedtostaywherehewas;butheagreedtolook.Uponenteringoneofthehouses,Mr.Mimmsdescribedhavinga“spiritualmoment”andwasover-comewiththefeelingthathe’dbeentherebefore.AshorttimelaterMr.Mimmsrelocatedtothatlandbankproperty.It’sbeensevenyearssincethelandbankforeclosedonthelandlordofhisoldhouse,andMr.Mimmsreportsbeing“ashappyashappycanbe.I’mhome.ThisiswhereIneedtobe.”
Progress in Flint, MI
Individual Transformations through Land Bank efforts
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Baltimore’sHealthyNeighborhoodsInitiativefocusesonstrengtheningthecity’sviablebutatrisk“middlemarket”neighborhoodsthroughavarietyofconfidence-buildingstrategies.AlsoinBaltimore,thecity’sCodeEnforcementDivisionispartneringwithprivatedeveloperstostabilizeareasaroundrehabilitatedhomes.
TheGreenImpactZoneinKansasCityisconcentratingfederal,state,andlocalresourcestotransforma150-blockarea,focusingonhousingrehabilitation,weatheriza-tion,communitypolicing,andjobtraining.
ThecityofIndianapolishasdesignatedtheSmartGrowthRedevelopmentDistrict,acomprehensivecommunityandeconomicdevelopmentplanninginitiative,tocoordinatebrownfieldcleanupactivities,createnewhousingandtransitopportunities,andrevitalizea540-acreblightedareaofthecity.
SanDiegoemploysavacantpropertycoordinatortoworkwithpropertyownerstoaddressnuisanceactivitiesandproblempropertiesinthecity.
InMinnesota,theFamilyHousingFundtooktheleadtobringadiversegroupofpublicandprivateentitiestogetherintheMinnesotaForeclosurePartnersCouncil.Since2007,theCouncilhasfosteredacoordinatedapproachtotheforeclosurecrisis,linkingforeclosureprevention,neighborhoodstabilization,andpolicyreform.
BytargetingitsfederalNeighborhoodStabiliza-tionProgramresourcescarefully,throughprogramsthatrehabilitatevacanthousingand
fosterhomeownership,MinneapolishasreversedthedeclineandsignificantlystabilizedtheNorthsideneighborhood,thecity’smostseverelydistressedarea.
CommunityorganizationsinDetroit,spear-headedbyCommunityLegalResources,createdtheDetroitVacantPropertyCampaign,whichhasgalvanizedthecity’spoliciesandpracticeswithrespecttovacantandabandonedproperties.
Partnershipsthatbringtogetherthecentralcity,
inner-ringsuburbs,andcountiesinasharedeffort
wereonceexceedinglyrare.Nowtheyare
becomingmorecommon.Citiesandsuburbsare
startingtorealizethattheyareinthistogether,
andwillhavetoworktogetheriftheyaretoreverse
thetideofdeteriorationandabandonmentthat
threatensallofthem.
Are new ways of thinking emerging? Theincreaseinthenumberandscaleofeffective
andcreativestateandlocalinitiativesisnota
fluke.Webelieveitisasignofarealchangein
howpeoplearebeginningtothinkaboutvacant
propertyandlanduseissues.
A fresh look at the nation’s older industrial citiesOnlyafewyearsago,tosuggestthatcitieslike
ClevelandorDetroitshouldrethinktraditional
growthmodelsandconcentrateonbecoming
smallerbutstrongercitieswouldhavebeen
Balti more
Vigorously enforcing housing
and building codes is a criti-
cal component of any local
government effort to main-
tain the health of transitional
neighborhoods. In those
with concentrated blocks of
vacancy and abandonment
however, getting real out-
comes through code enforce-
ment can be a challenge.
But even in those areas, a
well-thought out combination
of remedies can help encour-
age responsible ownership,
keep properties from becom-
ing nuisances, and facilitate
the transfer of properties
from investors who will not
rehabilitate them to others
who will. However, like many
municipal agencies, code
enforcement departments
are often short-staffed and
under-resourced, and direc-
tors must determine the most
strategic deployment of
their resources.
Overtheyears,Baltimorehasdevelopedasophisticatedarrayofsystemsandremediestoremediateitsvacantandabandonedproper-ties,includinganewinitiativetotransformpropertiesFromVacants to Value.Althoughtheprivatedevelopmentsectorisnotalwaysviewedasanallyintheefforttocombatblight,theinitiativeseekstoincentivizeresponsible,privatedevelopmentbydeployingthecity’scodeenforcementtoolsfortheben-efitofdeveloperswhocommittheirowncapitaltorevitalizesignificantlyabandonedneighborhoods.
Onblightedblocks,codeenforce-mentattorneysworkwithcapital-izedprivatedeveloperstominimizeinvestmentriskbytailoringaremedyforeachvacantproperty.Remediesinclude:engagingincriminalandcivilprosecutions;issuingpre-payablecivilcitationsinsignificantdollaramounts;act-ingasareceiverforapropertyforsale;demolishingandstabilizingasnecessary;andbringingeffec-tivenuisanceabatementactionstodeterandpunishproperty-basedcriminalactivity.Together,develop-ersandthecityidentifyblocksthatarelikelygoodcandidatesforwholeblockrenovationanddetermine
howmultiplesiteswillconnecttoform“islandsofdevelopment.”Baltimore’sHousingCodeEnforce-mentDivisionalsopartnerswithhigh-capacity,nonprofitorganiza-tionstobolsterthenumberoftoolsavailablethroughtheFrom Vacants to Valueprogram.
Carriedbythestrengthofthesepartnerships,thecitydevelopedimpressivegoalsforthefirstyearoftheinitiative:rehab1,000privately-ownedvacantbuildingsinsomeofthecity’smostdistressedneighbor-hoods,leverageprivateinvestmentinhousingstock,createaffordablehousingopportunitiesforresidentsatvariousincomelevels,increasethepropertyandincometaxbase,andcreatecommunitystewardedgreenspace.
Intransitionalareas,wherevacantbuildingsarenotconcentratedbutmaybelimitedtoonlyafewperblock,From Vacants to Valueusesautomatedbusinesssystemstogenerate$900citationstotheownersofvacantpropertiesthatareotherwisecapableofeithersellingorrehabilitatingthem.Inthisway,attorneyresourcescanbeshiftedtoareasofconcentratedvacancywheretheirskillsandcodeenforce-
Progress in Baltimore, MD
Leveraging Public and Private Sectors
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unthinkable.17Timeshavechanged.Manycities
nowrecognizethattheywillnotreturntotheir
one-timepeakpopulations,nortotheirhistory
asmanufacturingcenters.Thisadmission
hasfundamentallychangedhowtheythinkabout
themselvesandtheirfuture;ithasunleashed,
aswesuggestedabove,ahostofcreative
initiativesthatchallengetraditionalideasofcity
planning,andopenthedoortoanewwayof
thinkingaboutthesecities.Becauseofthe
demographicsofthesecities,andthewaysin
whichpopulationandjoblosshasdisproportion-
allyaffectedminorityandlow-incomecommuni-
ties,theissuealsoraisescriticalquestions
aboutsocialandracialequity.
Different approaches to environmental and land use issuesAnewawarenessofenvironmentalissues
triggeredbyclimatechangeischangingtheway
wethinkaboutlanduseanditsrelationshiptothe
environment.Stateclimateactionplanshave
beguntolookatwaysinfilldevelopmentcan
promotehigherdensitiesandreduceautomobile
travel,whilethereisagrowingfocusonpreserving
farmlandandopenspacebydirectingdevelop-
menttoexistingcommunities.Thenewly-released
LEEDforNeighborhoodDevelopment(LEED-ND)
ratingsystemrecognizestheenvironmental
benefitsoflocatingprojectsonpreviouslydevel-
opedorformerlycontaminatedland,while
recentlyintroducedfederallegislationwould
menttoolkitaremostrequired.Firstyeargoalsinthesetransitionalareasincludetherehabilitationofanother1,000vacantbuildings
InAugust2008,Baltimore’sHousingCodeEnforcementDivisionbeganworkingwiththeWestportCommunityAssociationandaprivatedeveloperinthe2000-2400blocksofAnnapolisRoad.Afteraninitialsurveyidentified36vacantstructuresalongthefour-blockarea,theprogramsetaboutusingresourcestoleveragetherevitalization.Thecityinitiatedcodeenforcementlitigationresultingintwenty-fiveofthosevacantpropertiesbeingplacedundercourtorder;threeofthepropertieshavebeensoldtonewownersandtwoofthoseownershavealreadyreceivedoccupancypermits.Thecitydemolishedonevacantstructurethatpresentedanimmediatehazardandtheremainingownershaveinitiatedrehabilitationworkwithoutbeingplacedundercourtorder.Overthenextsixmonths,80percentofthetargetareaisexpectedtoberevitalizedfromasourceofblighttoasourceofvalueforthesurroundingneighborhoodandthecity.
New Jersey
In January 2010, the State of
New Jersey passed legisla-
tion known to advocates as
the Creditor Responsibility
Law, a valuable tool to
combat the challenges faced
by communities reeling
from a glut of foreclosures.
Citiesthroughoutthecountryhavesufferedthedeteriorationthatoccursinneighborhoodswhilelengthyforeclosureproceedingswindtheirwaythroughthecourts.Whilethelegalprocesshasitsowninherentdelays,lendersaresometimesguiltyusingtacticstostallproceedings,oftenwithoutrecourse,becausetheyhavelittleincentivetotakepossessionofva-cantorabandonedproperties.Thisnewlawgiveslocalgovernmentsauthoritytorequiretheforeclosingentitytotakeresponsibilityforthepropertyfromthedaytheentityiniti-atestheforeclosureprocess,evenbeforeittakestitletotheproperty.Thelendermustnotifythemunici-palitythatithasinitiatedforeclosureproceedings,andprovidecontactinformationforwhoeverisrespon-sibleformaintainingtheproperty.
Ifthepropertysubsequentlybecomesvacant,andthelenderfailstocorrectacodeviolationorabateanuisance,andthemu-nicipalityspendsitsownfunds,themunicipalitymayplacealienontheproperty.Thelawalsogivesthemunicipalityauthoritytogoafteranyotherassetofthecreditortoobtainrepayment,imposingonthelenderthesameobligationthatatitleholderowestoitscreditor.
Asmunicipalitiesbecomemorefamiliarwiththelaw,stakehold-erswillbeencouragingthemtoincorporateitintoamoreholisticneighborhoodpreservationsys-tem.Althoughit’stoosoontopointtoresultsyet,itlookslikethelawisencouragingsomemunicipalitiestodeveloppartnershipswithCDCsandcivicorganizations—crimewatchgroups,blockclubs,etc.—tohelpmonitorwhenpropertiesbecomevacantand,therefore,thelender’sresponsibilitytomaintain.Thelawalsoencouragesmunicipalitiestocreaterealprop-ertyinformationsystemsthatallowthemtoaccuratelytrackforeclo-suresastheybecomevacant.Bymappingforeclosurenotices,citiescanrecognizeclustersof
propertiesandneighborhoodsatriskofabandonment,andworkwithneighborhood-basedorgani-zationstomonitororgaincontroloftheproperties.
Thislawislikelytobereplicatedinstatesconfrontingthechallengeofvacant,foreclosed,andunmain-tainedpropertiesintheircommuni-tiesthatcontributetoblightandlowerpropertyvalues.InNewJersey,communitydevelopmentadvocatesareencouragingmunici-palitiestoincorporateuseofthelawintoacomprehensivelocalstrategythatusesotherstatelaws,includingthenuisanceabatementlaws,andtheAbandonedPropertyRehabilitationAct(whichautho-rizescitiestoacceleratetaxforeclosure,pursuevacantprop-ertyreceivership,andusespotblighteminentdomain)aspartofanaggressiveefforttostaveofftheeffectsoftheforeclosurecrisis.
Progress in New Jersey
Leading the way in State Policy
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provideincentivesforsitingnewrenewable
energyfacilitiesonbrownfieldsites.
Stormwatermanagementoffersagoodexample
ofnewthinking.Manyoldercitiesareunderorders
fromtheEPAtoreplacetheircombinedstorm
andsanitarysewagesystems,whoserecurrent
overflowproblemspollutestreamsandwaterways.
Ratherthanspendbillionsofdollarsbuilding
massivenewseparatesewersystems,citieslike
PhiladelphiaareworkingwiththeEPAtousetheir
vacantlandtofilterwaterrunoff,whilecreating
neighborhoodamenitiessuchasparksandrain
gardensintheprocess.
Theeraofthe“driveuntilyouqualify”philosophy
ofhousing,inwhichpeoplemovedfarther
andfartherawayfromthecitycenterinsearch
ofhomestheycouldafford,maybeending.
Greaterhousingaffordabilityisoftenoffsetby
highertransportationcostsin“location-inefficient”
areas18whilehouseholdslivingininfillandtransit-
accessiblelocationshavemuchlowertransporta-
tioncosts.Withagrowingnationalawarenessofthe
benefitsoftransit-orienteddevelopmentandrising
marketdemandfortransit-proximatehousing,
vacantpropertieslocatedalongtransportation
corridorsareincreasinglybeingseenasopportuni-
tiesbylocalities,states,andthefederalgovern-
ment.RecentEPAstudiesshowadramatic
increaseintheshareofnewconstructiontaking
placeincentralcitiesandoldersuburbsinseveral
regions,particularlyinthepastfiveyears.19
A new federal policy climateFinally,oneofthemostpromisingopportunities
forafuturecomprehensiveandstrategicvacant
propertypolicyagendaliesintherecentchanges
infederalthinking.
Inthesummerof2008,Congressenactedthe
NeighborhoodStabilizationProgram(NSP)20
tohelpcommunitiesaddresstheeffectsof
foreclosedandabandonedpropertiesintheir
neighborhoods.Practitionersacrossthecountry
appreciatedthenewfederalfunding,and
welcomedthefederalgovernment’srecognition
ofthedamagecausedbythegrowinginventory
ofvacant,foreclosedproperties.Despitehigh
expectations,theresultsoftheinitialNSPprogram
San Diego
By helping unlock the
unique story of problem
properties and under-
standing how a structure
becomes vacant, the City
of San Diego Code Enforce-
ment Department is able to
more efficiently dispatch
effective tools and direct
resources to help property
owners comply with codes
and relieve the neighbor-
hood of nuisances affecting
residents’ quality of life.
Whetheravacantstructurecanberevived,andhowquickly,dependsonavailableresources,thecom-prehensivenessoftheresponse,andthestrengthofexistingordi-nances.WhiletherearenumerousbuildingblockstotheapproachusedinSanDiego,includinganef-fectivevacantpropertyordinance,acodeenforcementprosecutor,strongpartnerships,andanarrayofenforcementstrategies,auniqueelementistheuseofaVacantPropertyCoordinator.
Althoughacoordinator’sworkmaybemoremanageableinasmaller
city,aliaisonbetweenthecityandthepublicthathelpsfindremediesforproblempropertiesisavalu-ableresourceinanycommunity.TheVacantPropertyCoordinatorinSanDiegoistaskedwithcreatinganinventoryandprofileofvacantproperties,andwithbeingthefirstrespondertoacomplaintofanunsecuredbuilding.TheCoordina-tormakessureboththecityandtheownerfollowthroughwiththeirresponsibilities;thecitymayneedtostabilizeanycrimeandnuisanceactivity,andeachownerisrequiredbySanDiegoMunicipalCodetodevelopaplanformaintenanceandrehab.
Agoodcoordinatoristrainedinbuildingcodeandlanddevelop-mentregulationsandhasasolidworkingknowledgeofavailableeconomicdevelopmentprograms,agencies,andgrantsinthecom-munity.Ifthepropertyneedstobeusheredthroughprobateortheownerneedsaloantorehabilitatetheproperty,theCoordinatorcanassistbyidentifyingprobonolegalassistanceordetermineiftheownerqualifiesforloansfromtheHousingCommissionornonprofitagencies.Withtheowner’spermis-sion,theCoordinatorcanalsohelp
findinvestorswhomightbuytheproperty.TheexperienceinSanDiegohasshownthatmoneyisnottheonlyobstacletorehabilitation.Morecomplexchallengesincludesentimentalattachments,familydisagreementsoverdispositionofaproperty,mentalillnessorotherincompetency,titledisputes,zoningchangesthathinderacommercialproperty’spotential,litigationoverinsuranceproceeds,hesitancytorebuildafire-damagedunitduetoconcernsthatdoingsowillcausetheownertoloseapreviouslycon-formingright.
OnesuccessachievedrecentlywasfacilitatingthereuseofalongstandingvacanthomeintheGoldenHillsarea,knownforbeautifullyrenovatedVictorianstylehomesandfortheworkofnotedarchitectIrvingGil.Aftertheowner’sdeath,thehomehadbecomeasourceofblightandcrime.TheCoordinatortrackeddownasurvivingniecewhostoodtoinherittheproperty,andassistedherwithassessingthepropertyandfollowingthroughwithaprobateaction.Simultaneously,theCoordinatordevelopedarelationshipwithmembersoftherealestateindustrywithfunds
Progress in San Diego, CA
Coordinating responses to Vacancy
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(knownasNSP1)arelikelytobemodest.Thisis
areflectionofmanyfactors,includingthenature
oftheprogram—whichencouragedtransactional,
property-by-propertyinterventionsratherthan
long-term,strategicapproaches.Additionally
problematicwasthedistributionofNSPfunds,
whichusedaformulathatsentlargeamounts
tohigh-foreclosurebutlow-capacitySunbelt
communitiesthathaddifficultyspendingtheir
moneyinacost-effectiveandstrategicfashion.
AsofMay2010,recipientshadfourmonthsleftto
committhefederalfunds,yetoverone-thirdof
thegranteeshadcommittedlessthanhalf.
ThenewHUDleadershipthatcameinwiththe
Obamaadministrationrecognizedmanyofthese
problems.ThesecondroundofNSPfundingin
2009wasallocatedonacompetitiveratherthan
aformula-drivenbasis,withcriteriathatlooked
explicitlyateachstate’sorcity’splanforstrategic,
market-based,targetingoffederalresources.
Thepercentageoffundsthatwenttoareaswith
systemicabandonmentwasconsiderablyhigher
thaninthefirstround.HUDhasalsochanged
someoftheprogramrulestogivelocalgovern-
mentsandCDCsgreaterflexibilityintheirproperty
acquisitionefforts21andhasbeguntoexplore
creatingatargetedprogramtoaddressthe
issuesofcitieswithlong-termpopulationloss
andsystemicabandonmentissues,although
thetimingandscopeofanysuchprogram
arestilluncertain.
andexpertisetocompletehistoricalpreservationprojects.Despitetheinterestofmanyinvestorsandlocalhistorians,theniecewouldnotsell;theniecewantedheraunttobehonoredandfearedthatheruniquehistorywiththepropertywouldbelost.Byunderstandingtheniece’smotivations,theCoordinatorwasabletoproposeawin-wincourseofaction.Shesuggestedthatwhentheniecefoundaninvestorshefeltcomfortablewith,shecouldrequestthataplaquewithheraunt’snamebeaffixedtothestructure.TheCoordinatoralsoensuredthatthecommunitywasinvolvedduringtherenovationprocess.Oncethepropertywasrenovated,therewasanopenhousesothepreservationcommitteeandthecommunitycouldseethefinishedrenovation.Today,aplaquehonoringthepreviousowneradornsthehome,whichhasbeenrestoredtoitsformerbeauty.
Detroit
Vacant and abandoned lots,
homes, and commercial and
industrial buildings have
been present in Detroit for
years. But the combination
of pre-existing vacancy,
large numbers of foreclo-
sures, and a sharp decline
in the housing market has
lead to unprecedented
instability across the city’s
neighborhoods. Although
every sector in the city is
pitching in to help make
Detroit’s neighborhoods
thrive again—including the
city leadership, which is de-
veloping a comprehensive
strategic framework to guide
efforts—residents and com-
munity organizations are tak-
ing action today to hold their
neighborhoods together.
Oneorganizationthatishelpingtoprovidesupportto,andbuildthecapacityof,thesecriticalgrass-rootseffortsisCommunityLegalResourcesandtheDetroitVacant
PropertyCampaign,whichtheystaff.ThroughtheCommunityandPropertyPreservationProgram(CAPP),CLR/DVPCoperatesagrantprogramthatprovidessupplemen-talfinancialassistancetocommunity-basedorganizationsthatareengagedincommunity-initiatedvacantpropertymaintenance.
Sincelaunchingin2009,CAPPhasserved34organizationsandfundedarangeofactivities,includ-ingalleyclean-upsandlandscap-ing,vacantpropertysurveysandmapping,andevensolarlightinstallations.Althoughthegrantsarenotlarge,community-basedeffortstoreverseblightoftenarestalledbythecostsofequipmentandlabor.Theresourcesprovidedthroughtheprogramaresufficientandareflexiblesotheorganiza-tionscandeveloptherightstrategyfortheirneighborhoods.
Oneorganizationusedtheirgranttoworkwitha“cleancorps”ofneighborhoodyouthtoconductavacantpropertysurvey.Throughphotographsanddocumentationoftheconditions,theteamwasabletorefer283propertiestothecitydepartmentsresponsible,wheremanyarenowinlinefordemolition.
Thesurvey,plusboarding,painting,andcleanupstargetedtowardanareasurroundinganelementaryschool,havehadasubstantialimpactonthesafetyofchildrentravelingtoandfromschool.
AsDetroitandothercitiesallocateresourcesbasedonwheretheas-setsarelocatedinthecommunity,it’simportanttorememberthatengagedcitizensareatremendousassetthatcanbemultiplied.Inadditiontoleadingtomeasurableoutcomes,theCAPPgrantsarealsoawaytofocusonbuildingthecapacityofresidentswhoarewill-ingtospendthetimeandenergytoworktogethertodealwiththeproblemsbroughtonbyvacancies.Onegranteeorganizationnotedthattheprogramis“designedtoengage—andsubsequently—em-powerresidentstoutilizecreativeremediestoabatenuisances…”Anengagedandempoweredcom-munityisoneofthemostimportantelementsofanyredevelopmentproject.WiththeCAPPprograminplaceandthededicatedworkofthecityandcommunityorganizations,Detroitmaybeabletoachievethesuccessesfoundinothercommunitiesacrossthecountry.
Progress in Detroit, MI
Leveraging Community-based Action
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DespitethelimitationsoftheNSPprogram,
overallithashadapositiveeffect.Althoughsome
communitiesmayhavehaddifficultyspending
fundseffectively,otherslikeChicagoandMinne-
apolishaverisentothechallengewithcreative,
innovativestrategies.Farmoreneedstobedoneto
supplementtheirefforts,includingtheleveraging
otherfederalresourcestocomplementtheNSP
efforts,andaligningmanagementanddisposition
practicesoffederally-controlledhousing.
Recognizingthattheeconomiccriseshas
compoundedlong-termdisinvestmentinauto
manufacturingcommunitiesthefederalgovern-
mentrecentlyannouncedacommitmentto
provideover$800milliontopayforenvironmental
remediationandre-conditioningof90brownfield
sitescreatedasaresultoftherestructuringof
GeneralMotors,givingashotinthearmtothe
citieswherethosederelictsitesarelocated.22
Althoughsomeoftheinitialfederalprogrammatic
effortsmayprovetoshowamodeststart,wesee
thepotentialofmorefundamentalchangeinthe
future.TheObamaAdministrationisshowinga
readinesstoattacksomeofthesystemicbarriers
tovacantpropertyrevitalization,andforthefirst
time,moveawayfromthetraditional“onesizefits
all”federalapproachtofocusdirectlyonthe
issuesoftheseverelyimpactedolder,industrial
citiesaswellastolookbroadlyatthelarger
regionalissuesaffectingtownsandcities.
ThePartnershipforSustainableCommunities,
launchedinJune2009byHUD,EPA,andDOT,
representsamajorchangeinfederalpolicy,by
linkinghousing,transportation,andenvironmental
protectionwiththegoalofcreatingmorelivable,
equitable,andsustainablecommunities.Forthe
firsttimeever,thesethreeagenciesareworking
togethertoadvanceagreed-upongoals:aligning
federalpolicies,removingbarrierstocollabora-
tion,andleveraginginteragencyfundingsources
topromotebettercommunitywideoutcomes.An
initialroundof$150millioninsustainablecommu-
nitiesplanninggrantsisexpectedtobeawarded
byHUD,workingwithitspartners,latein2010.
Successful initiatives in the field and the way perceptions
are changing suggest that
this moment is an opportunity that
should be seized.
Boththesuccessfulinitiativesinthefieldandthewayperceptionsarechanging
suggestthatthismomentrepresentsnotjustacrisis,butalsoanopportunitythat
shouldbeseizedbyAmerica’stownsandcities.Atthesametime,thechallenges
aheadaregreat.Thereisnosinglestrategythatcanaddressthevarietyofproblem
propertysituations.Multiplestrategiesforprevention,acquisition,maintenance,
disposition,andfinancingmustbeemployedtopromotetheproductivereuseof
vacantproperties;thesestrategies,moreover,aremosteffectiveonlywhenthey
arepartofacomprehensive,well-designedsystem.Patience,forethought,
collaboration,long-termthinking,sophisticatedmixturesofcarrotsandsticks,
andatransparentprocessthatinvitesratherthanscreensoutparticipationand
criticism,areallcriticaltothesuccessofanystrategythatseekstorebuild
communitiesratherthansimplyfixscatteredindividualproperties.
Framing aPolicy Agenda For Vacant And Abandoned Properties
Basedontheexperienceofstates,cities,
non-profitorganizations,for-profitdevelopers,
andotherstakeholders,weofferthefollowing
principles(seepage40)andrecommendations
toguidefuturepolicyinencouragingand
incentivizingchangeintheunderlyingsystems
forlandrevitalization.
RecommendationsNosingleentity,sector,orindustrycansolvea
community’svacantandabandonedproperty
problemsonitsown.Successtakesmanypartners
andpointsofattack;ittakeswhatChicago’s
HousingCommissionerEllenSahlicallsthe
“allhandsondeck”approach.Atthesametime,
39
1 Vacant and abandoned property issues are complicated, and require complex, multifaceted strategies.Nosingletool,program,or“silverbullet”willfixtheproblem.
2 Communitiesaredifferent,theforcestriggeringabandonmentaredifferent,andthesolutionsaredifferent.We need to move away from “one size fits all” programs and strategies.
3 Theseproblemshavetakenyears,inmanycasesdecades,toemerge,andoftenreflectdeeply-rootedunderlyingproblems.Address-ing the vacant properties problem requires a long-term, sustained commitment.
4 Similarly,a systemic approach is needed to address the forces driving abandonment and reuse of properties,ratherthandisconnectedbuilding-by-buildingortransactionalapproaches.
5 All levels of government can and should play a strong role in addressing vacant property issues,andmustcoordinatetheirefforts,bothamongagenciesatthesamelevelofgovernment,andamongfederal,state,andlocalagencies.Whilethestateandfederalgovernmentscanprovideresources,tools,andsupport,localgovernmentmustbeatthecenter,takingresponsibilityfortheircommunity’sfuture.
6 Taking responsibility for the future of a community means being willing to take responsibility for properties, takingcontrolofpropertieswhennecessarytodeterminetheiroutcomesandbeabletoplanforthefuture.
7 Property ownership is a combinationof rights and responsibilities that go together.Propertyownerswhoneglecttheirpropertiesandallowthemtoblighttheirsurroundingsandharmotherpropertyownersandresidentscannothidebehind“propertyrights”rhetoric.Theyshouldbeheldaccountablefortheirbehavior.
8 Governmentmustlead,butcannotsolvetheproblemsofvacantandabandonedpropertiesbyitself.Solutions require that the private sector, particularly the real estate and financial industries, the nonprofit sector, residents and community-based organizations, all be engaged.
9 Vacantandabandonedpropertiesaffecttheirneighborsmostofall.Residents of affected communities must be engaged in framing strategies to deal with the problem, particularlywherethosestrategies(asinolderindustrialcities)mayinvolvemajorchangestothedirectionofpublicpolicy.
10 Vacant property strategies should be driven by solid data and information, tomakesurethatscarceresourcesareusedeffectively,thatprogresscanbetracked,andstrategiesconstantlyrefinedtoreflectchangesineconomicandotherconditions.
Ten Principles to Guide the Vacant Property Agenda
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differententities,sectors,andindustrieshaveunique
assetsandneedtoplaydifferentroles.Gettingthe
rolesstraight,andworkingeffectivelytogether,isthe
keysteptomakingsolutionspossible.
Roles for the federal government Designprogramsthatreflectthedifferences
betweencommunitiesandmarkets,includingthedifferencebetweensystemicandtransi-tionalabandonment.Federalhousingandcommunitydevelopmentpolicyshouldfocusonthelargergoalsofrevitalizingcommunities,nottransactionsfortheirownsake.
Focusdirectlyonplanningandcommunityregenerationthroughprogramsthatencour-agelocalinnovationandpartnerships.Federalincentiveprogramsshouldincludesupportforreconfigurationoflandusesincitieswithlargeamountsofsurplusvacantlandandbuildings.
Alignfederalprogramstoleverageeachother,suchaslinkingneighborhoodstabilizationandenergy-efficiencyfunds,orCDBGandbrownfieldsprograms,aligningtimetablesandfundingcriteria.
Helpcitiesandstatesgettheinformationtheyneedtomakegooddecisionsbyprovidingusabledataandsupportingthecreationofrealpropertyinformationsystems.
Establishperformanceobjectivesforprogramssuchasneighborhoodstabilization.Theseobjectivesshouldbebasedonsustainableneighborhoodchangegoalsratherthanontransactions,andencouragecreativelocalstrategiestoreachthegoals.
Usefederaldiscretionaryfundingprogramstoleveragesystemchangeatthestatelevel,followingthemodeloftheDepartmentofEducation’s“RacetotheTop.”
Helpbuildthecapacityoflocalgovernmentsandotherstakeholdersthroughtechnicalassistance,training,andstaffingsupport.
Roles for state government Enactlegislationtoenablemunicipalities
totakecontrolovervacantpropertiesintheircommunities,throughtoolssuchaslandbanking,taxforeclosurereform,orvacantpropertyreceivership.
Changestatepoliciesthatfuelabandonment;forexamplebyreformingstatelawsthatgovernmortgageforeclosureandlenderresponsibility.
Facilitateintergovernmentalcooperationandregionalstrategiesbyprovidingincentivesforcooperativeefforts.
Targetstateassistanceprogramstoadvancelocalandregionalstrategiesthatdiscour-agesprawlinggreenfielddevelopmentandincentivizereuseandredevelopmentofvacantandunderutilizedurbanland.
Roles for local government Frameaclearvisionofthecommunity’s
futurethatincludesastrongroleforlandandbuildingreuseandreconfiguration.
Engagethecommunity’sresidentsintheprocessofthinkingthroughvacantpropertyreuseandlandreconfigurationstrategies,beingupfrontaboutthechallengesahead.
Avoid“quickfix”transactionsthatofferlittlelong-termbenefit,andfocusinsteadonsystemicchangeforlong-termtransformation.
Buildthetechnicalandmanagerialcapacityincitygovernmenttoframeandimplementmulti-dimensionalplansforrevitalizationandchange.
PartnerwithCDCs,community-basedorganizations,andotherstoleveragelimitedpublicsectorresources.
Encourageredevelopmentbymodernizinglanduse,zoning,andbuildingregulations,andcreatingstreamlined“onestop”permittingsystems.
Roles for CDCs and other community- based organizations
Gobeyondtransactionalhousingdevelop-mentactivitiestofocusoncomprehensive,market-driven,andsustainableneighborhoodstabilizationandrevitalization,buildinghealthiercommunitieswithstrongsocialcapital.
BuildworkingpartnershipsamongCDCsandothernonprofitorganizationstoleverageavailablenonprofitresourcesbydividingtasksandresponsibilities,sharinginformation,andskills,andcoordinatingpriorities.
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Givevacantandabandonedpropertiespriorityinneighborhoodstrategies,focusingbothonpreventionofabandonmentandreuseofvacantproperties.
Partnerwithcitygovernmentagenciesandotherstoplanandexecutestrategiestopreventabandonmentandaddressvacantpropertieswithinthecommunity.
Roles for foundations and other private sector funders
Coordinatewithotherstakeholderstoensurethateachfoundation’sinvestmentsincommunityrevitalizationcomplementandleveragepublicsectorandnonprofitefforts,reflectingsharedgeographicandprogram-maticpriorities.
Helpbuildcapacityinlocalgovernmentandthenonprofitsectortoplanandimplementeffectivemulti-facetedvacantandabandonedpropertyinitiatives,integratedintolargerrevitalizationstrategies.
Makeacommitmenttolong-termsupportfortheseinitiatives,recognizingthatthesearelong-termefforts,andthatadequatealternativefundingresourcesareunlikelytobecomeavailableintheforeseeablefuture.
Linkfundingdecisionstograntees’willingnesstocreateeffectivepartnershipsandaddresssystemicchallenges.
Roles for the real estate, finance, and development sectors
Developers:partnerwithlocalgovernmentandnonprofitstodeveloppropertiesinwaysthatadvanceneighborhoodstabilizationandrevitalizationefforts.
Realtors:partnerwithlocalgovernmentandnonprofitstoidentifypotentialusesforvacantproperties,anddevelopmarket-buildingstrategiesforcommunitiesandtargetneighborhoods.
Lendersandservicers:workwithlocalgovernmentsandnonprofitstoensurethatforeclosedpropertiesaremaintainedduringforeclosure,andareconveyedtoresponsibleownersafterforeclosuresale.
Lenders:ensurethatadequatemortgagecapitalisavailabletosupportcreditworthyhomebuyersandfinancesoundcommunityandeconomicdevelopmentprojects.
no single entity, sector, or industry can solve a community’s vacant and abandoned property problems on its own.
The scope and
determination of thousands of local stakeholders is little short of awe-inspiring. At the same time, it is not enough.
Vacantandabandonedpropertiesareerodingtheeconomicandsocialfabricof
communitiesacrosstheUnitedStates.LikenotimeinAmericanhistory,theconfluence
ofdisastersintheeconomy,housing,andemploymentmarketsensurethatno
communityisimmunefromthethreatsofforeclosure,vacancyandabandonment.
Atthesametime,themagnitudeofthecrisis,aswellastheinfusionofnewresources
suchasthefederalNeighborhoodStabilizationProgram,haveunleashedawave
ofcreativeenergyonthepartoflocalgovernments,communitydevelopment
corporations,andmanyothersconfrontingthecrisisintheircommunities.
Thescopeanddeterminationofthousandsof
localstakeholdersislittleshortofawe-inspiring.
Atthesametime,itisnotenough.Theirefforts
areoftenscattered,smallinscale,andunlikelyto
leadtolong-term,sustainedchange.Policymakers
andcommunityleadersacrossthecountryneed
togobeyondtheseefforts,recognizethemagni-
tudeoftheproblem,andfocusonthefunda-
mentalchangesinlaws,policiesandpracticesthat
areneededifwearetotackletheproblematthe
scaleitdemands.
Aboveall,weneedtofocusonvacantand
abandonedpropertiesnotjustasaproblem,
butasaresource,onethatwecanusetobuild
stronger,healthiercommunities.Inmanycities,
vacanthousescanbeturnedbackintohomes
forfamiliesrichandpoor,whileobsoletefactories
andofficebuildingscanbecomeloftsand
apartments,orincubatorsforsmallbusinesses
andemergingtechnologies.Oldercitiesthathave
beenlosingpopulationmaybecomesmaller,
buttheycanbecomehealthierandgreenercities,
withcommunityspaces,farms,andstream
corridorsreplacingblightedareas.
Thiscanbeareality,notjustinahandfulofplaces,
butincitiesandneighborhoodsthroughoutthe
UnitedStates.Ifweforgestrong,vitalpartnerships
forsystemicreform,engagingthepublicand
privatesectorsandcuttingacrossmunicipal
boundaries,wecantransformAmerica’scommu-
nities,comingoutoftoday’scrisisastronger,
healthiernation.
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1. Weusethetermsvacant,abandonedandproblemproper-tiestorefertothepropertiesthatareourconcern,butthesetermsareoftenusedtomeanverydifferentthings.Vacantmerelyconveysthatthepropertyisempty,butmanyvacantpropertiesstillhaveauseoraresponsibleownertakingcareofit.Examplesofsuchvacantpropertiesincludearevacationhomesthataretemporarilyunoccupied,housesbetweenownerswhileactivelybeingmarketed,orhousesabouttoberehabilitatedbyanon-profit.Beingvacantisaconditionoftheproperty,notalegalstatus.Abandoned propertiesarethepropertieswhoseownerhasstoppedtak-ingresponsibilityfortheproperty,suchasnotmaintainingitorfailingtopaypropertytaxes.Abandonedpropertiesareusuallyvacantaswell,butnotalways,aswhenalandlordwalksawayfromabuildingwhichstillhastenantslivinginit.Incontrasttovacancy,abandonmenthasalegalaswellasdescriptivemeaning.Problempropertiesarepropertiesthatarecausingproblemsfortheirneighborsandthecom-munity.Whilemanyproblempropertiesarevacantoraban-doned,others,suchaspropertieswherecriminalactivityistakingplace,maynotbe.Still,occupiedproblempropertiesaremorethanlikelytobeonapathtoabandonmentifnotdealtwithintime.Inthisreport,though,wewillusethesetermsinterchangeably.Whenwetalkaboutvacantproper-ties,though,wewillnotbereferringtothose“innocent”vacantpropertieslikesecondhomes,buttothosethatarealsoproblemsforthecommunity.
2. Detroit,inparticularhasbenefited(orsuffered)frommediaattentioninthepastyearortwo,includingacoverstoryinTimemagazine.Awriterforalocalonlinemagazinerecentlywrotethat“Detroitisbeingdescendedonbyaplagueofreporters.Ifyouliveonablocknearoneofthecity’stensofthousandsofabandonedbuildings,youcan’ttossachunkofForditewithouthittingsomeschmuckwithacameraworthmorethanyourhouse.”(QuotedinJohnGallagher,Reimagining Detroit,forthcominglaterin2010).Clevelandwasalsothesubjectofacoverstory,intheNew York Times Magazine.
3. Althoughsomeincreasebetween2000and2008canbeexpected,theincreasereflectedinthesedataappearsunusuallylarge.Thisishardtointerpret,sincethedefinitionsusedinbothdatasetsarecomparable.
4. ThesedataaregatheredquarterlybytheU.S.PostalServiceunderanagreementwiththeDepartmentofHousing&UrbanDevelopment.PostedontheHUDUserwebsite,thedataareaggregatedfromformssubmittedbypostalwork-ers;whileitissubjecttovariability,itoffersausabledatabase,butonethatissubjecttoimportantqualifications.Thedatadistinguishesbetweenvacantproperties,whichhavebeenvacantfor90daysormore,andno-statproperties,whichinclude(1)addressesforbusinessesorhomesunderconstructionandnotyetoccupiedand(2)addressesinurbanareasidentifiedbyacarrierasnotlikelytobeactiveforsometime.IncitieslikeFlintorDetroit,thesumofthosetwocategoriesisagoodreflectionofvacant—andinmostcasesabandoned—properties.Incitieswithlargeamountsofconstructionunderway,orwithlargeconcentrationsofsecondhomes,however,thedataarelessmeaningfulforthesepurposes.Formoreinformationseehttp://www.huduser.org/portal/datasets/usps.html.
5. AlthoughtheUSPSstartedprovidingvacancydatasetsin2005,businessaddresseswereonlyseparatedstartingin2008.
6. Reuters(January2010)http://www.reuters.com/article/idUSN058150520100106.
7. Reuters(April2010)http://www.reuters.com/article/idUS-
TRE6340FH20100405.
8. Crain’s Chicago Business(January2010)http://www.startribune.com/business/99630514.html.
9. Washington Business Journal(March2010)http://wash-ington.bizjournals.com/washington/stories/2010/03/15/story8.html.
10. Star Tribune(August2010)http://www.startribune.com/business/99630514.html.
11. TheproblemisnotuniquetothelargeindustrialcitiesoftheMidwest.Manysmallercommunitiesaroundthecountry,includingmilltownsinthesouth,miningtownsintheWest,orfarmmarketcentersinthePrairiestateshaveexperiencedsimilarpopulationlossastheylosttheactivitythatprovidedthemwithaneconomicbase.
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12. TestimonytotheCommitteeontheBudget,U.S.HouseofRepresentatives,June9,2010availableathttp://www.federalreserve.gov/newsevents/testimony/bernan-ke20100609a.htm
13. NationalLeagueofCities,“SignificantBudgetShortfallsCouldMeanMoreJobLosses,”PressRelease,May24,2010,availableathttp://www.nlc.org/PRESSROOM/PRESSRELEASEITEMS/SoACJobsEcon5.10.aspx
14. “DirtintoDollars:ConvertingVacantLandIntoValuableDevelopment.”Brookings Review,18no.3,Summer2000.
15. NEOCANDOisafreeandpubliclyaccessiblesocialandeconomicdatasystemthatallowsuserstoaccessdatafortheentire17countyNortheastOhioregion,orforspecificneighborhoodswithinCleveland,maintainedbytheCaseWesternReserveUniversity’sMandelSchoolofAppliedSocialSciencesCenteronUrbanPovertyandCommunityDevelopment.
16. ChulaVistatookthisactiononthebasisofitspowersundertheCaliforniahomerulestatute,whichgivescitiesbroaddiscretiontoenactordinancestofurtherhealthandsafety.Inmanystates,amunicipalitywouldnothavethele-galauthoritytoenactsuchanordinanceintheabsenceofastateenablingstatute.NewHavenenacteditsordinancewithoutastatelaw.Subsequently,theConnecticutlegisla-tureenactedalawwhicheffectivelypreventedcitiesandtownsfromenactingsuchordinances,butgrandfatheredNewHaven’sordinance.
17. In1993,thethenDetroitCityOmbudsman,thewell-respectedcivicleaderMarieFarrell-Donaldson,suggestedthatlargevacantareasofthecityreturntogreenuses.Hersuggestionwasgreetedwithamixtureofridiculeandout-rage,andquicklyshelved.Today,thisisofficialcitypolicy.
18. CenterforHousingPolicy,“AHeavyLoad:TheCombinedHousingandTransportationBurdensofWorkingFamilies,”October2006,availableathttp://www.cnt.org/repository/heavy_load_10_06.pdf
19. U.S.EnvironmentalProtectionAgency,“ResidentialConstructionTrendsinAmerica’sMetropolitanRegions,”availableathttp://www.epa.gov/piedpage/construc-tion_trends.htm
20. Sec.2301oftheHousing&EconomicRecoveryActof2008,entitledinthelegislation“emergencyassistancefortheredevelopmentofabandonedandforeclosedhomes”andsubsequentlyrenamedtheNeighborhoodStabiliza-tionProgram(NSP)byHUD,appropriated$3.92billionforthispurpose.Afteranadditional$2billionwasappropri-atedforsimilaractivities(butunderdifferentgroundrules)intheAmericanRecoveryandReinvestmentAct(ARRA),alsoknownastheeconomicstimulusbill,thefirstprogramcametobeknownasNSP1andthesecondasNSP2.
21. AnexampleofthiscomesfromtheJuly2010WallStreetReformandConsumerProtectionAct.TheinitialNSPprogramonlyallowedrehabilitationorredevelopmentofforeclosedorabandonedpropertiestoqualifyforthere-quiredlow-incomeset-aide.Thefinancialreformbillmadeitpossibletoincludevacantpropertiesaswell,openingupthepotentialtodevelopmulti-familyunitsandotherafford-ablehousingonvacantlandandothervacantproperties.
22. NationalEconomicCouncil,“AutoCommunitiesandtheNextEconomy,”Remarks,May18,2010,availableathttp://www.whitehouse.gov/administration/eop/nec/speeches/auto-communities-next-economy
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Jennifer R. Leonard and Alan Mallach
The mission of the Center for Community Progress is to create vibrant communities primarily through the reuse of vacant, abandoned, and problem properties in America’s cities and towns. Community Progress helps local and state governments seize the potential of these properties for the economic and social benefit of their communities. We help leaders advocate for and implement the policy changes to prevent abandonment and to reuse these properties.
Locations421 Garland Street, Suite AFlint, Michigan 48503
1001 Connecticut Avenue, NW, Suite 1235Washington, D.C. 20036
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communityprogress.net TRANSFORMING VACANT PROPERTIES IN
TODAY’S AMERICA
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