| Community Scope | Volume 7, Issue 1 2019 Community Development Department Housing Policy Federal ofRichmond Bank Reserve Vol. 7Issue 1

1 | www.richmondfed.org/community_development 2 | Community Scope | Volume 7, Issue 1 Federal BankofRichmond. Reserve developed ofthe by theCommunity Development department development. The content of and analysis oncurrent andemerging issuesincommunity The missionof of Richmond ortheFederalof Richmond System. Reserve contributors andnotnecessarily thoseoftheFederal Bank Reserve The viewsexpressed are inCommunity Scope thoseof the copy ofthepublication inwhichthereprinted material appears. andtables. Creditcharts Permission from theeditor isrequired before reprinting photos, Text may bereprinted withthedisclaimerinitalicsbelow. upon request. Richmond. Free andadditionalcopies subscriptions are available Community Scope A specialthanksto LisaKenneyfor editingassistance. Community Development Associate Research Associate Community Analyst Development www.richmondfed.org/community_development/ Community Development ResearchCommunity Development Manager, Editor Regional Community Development Senior Manager Senior Regional Community Development Community Development Senior Research Analyst Senior Community Development Research Analyst Senior Community Development Community Development Staff Department Regional Community Development Associate Regional Community Development Regional Community Development Manager Regional Community Development To inquire aboutourpublications, contact: P.O. Box 27622,Richmond, Va. 23261-7622 Group Vice President, Microeconomics and Community Development Department The Federal BankofRichmond Reserve email: [email protected] Community Scope Acting Community Affairs OfficerActing Community Affairs ispublishedby theFederal Bankof Reserve Emily WaveringCorcoran Research Communications, Jeanne Milliken Bonds Design: Rodney WestRodney Design: Surekha CarpenterSurekha Verlinda Darden Shannon McKay Community Scope Samuel StoreySamuel Ann Macheras Peter Dolkart Community Scope Community Scope isto provide information andsendtheeditor a is collected and is collected

“blockbusting,” generations became ofminorities covenants, followed by mortgage “” and ofrestrictive zoningbeginning and withthetactics inBaltimore. ago,of housingpolicy acentury Over This issueof Overview it stillremains thesame.” -H.L.Mencken years. haschangedinthattime, It asIhave -butsomehow “I have lived inonehouseBaltimore fornearlyforty-five andPeterAnne A.Burnett M.Dolkart Authors leaving more than 70blocksand140acres ofthe spread, destroying 1,545buildingsin30hoursand ina a firecotton thatwarehouse started andquickly Great Fire was destroyed ofthecity of1904.Most by BaltimoreModern emerged from theashesof From theAshes Baltimore metropolitan region. for affordable quality opportunities housingwithinthe a hardened landscapeandto disperseandexpand community-based and grassroots-driven, to remake ofcurrentoverview initiatives, almostexclusively of theirconsequences. The paperalsoprovides an decisions madeby peoplewhomay have beenunaware religion, othersresulted ofincremental from alegacy their intent to separate residents by race, and ethnicity Baltimore. While were someofthesepractices in overt of once andcommunities stableneighborhoods in thatpolicies andpractices madeinevitablethedecline This paperexplores theorigins and implementation of approved in1910. where someofthefirsthousingsegregation laws were itwas alsothecity thewar Reconstruction, during after Civil War blackmiddleclass (1861),withafunctioning ofthe at thestart of any inthecountry community once thehomefor population thelargest free-black trapped inimpoverished neighborhoods. urban Acity Housing Policy Baltimore Community Scope

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focuses on the history focuses onthehistory downtown area burned.2 The rebuilding of downtown The City Council responded to the Hawkins home Baltimore gave the city the opportunity to widen purchase by proposing Ordinance 610, which divided streets, reduce lot density and finally construct public the city into black blocks and white blocks: “No negro infrastructure, including modern water and sewer can move into a block in which more than half are systems. Population migration, already in progress white and no white person could move into a block with the construction of street car lines and new roads in which more than half the residents are colored.”4 for automobiles, accelerated dramatically. Affluent Sponsors of the ordinance cited the U.S. Supreme families were the first to abandon downtown out of Court’s Plessy v. Ferguson decision as the basis for the fear of future blazes and public health epidemics. With legality of the nation’s first racially restrictive the subsequent municipal annexation of county land ordinance. The courts quickly invalidated this law as in 1914, the flood gates to suburbanization opened as too vague to enforce, resulting in three subsequent residents pursued lower property tax rates and front enactments of modified segregation ordinances. Each lawns. new ordinance was overturned until a final version succeeded in passing legal sufficiency in 1913.5 A new civic order formed in the hollowed burnt district. Lines of demarcation separating races and When the U.S. Supreme Court ultimately struck down ethnic communities became fixed along the street residential ordinances in 1917,6 grid layout and in daily social relations. McCulloh Baltimore enacted a strategy used in in Street in the Mount Royal district became the racial which building and health department inspectors dividing line. Within six years of the Great Fire, African- lodged code violations against owners who ignored Americans were no longer welcome in theaters, parks, the unofficial racial exclusion rule. Communities and restaurants, hotels and department stores. Hence, property owners then imposed restrictive covenants segregation in public places was established as part of that ensured no population group by race, nationality the prevailing social order. or religion would deviate from their existing zones.7

With the outbreak of World War I halting most “The “common sense of the community” centered on the European immigration, northern U.S. factories began white race is a unit in its decision that negro invasion of recruiting African-Americans from the rural South white residential sections must cease now and forever who were eager to escape poverty and Jim Crow more.” - Samuel L. West, Baltimore City Council, Sponsor laws for jobs in the cities. By 1920, the population of of Ordinance 610 in 1910 African-Americans in Baltimore was steadily rising, and the segregation laws could not prevent blacks from moving into formerly white neighborhoods recently Residential Segregation Takes Hold abandoned by “” to the new . Land Prior to 1900, predominantly African-American development companies, notably the Roland Park neighborhoods did not exist in Baltimore. Beginning Company, began to construct new neighborhoods in in the early 20th century, African-Americans from the Baltimore County that utilized legal deeds containing rural South began moving north in great numbers. binding covenants prohibiting sales to African- Early on, African-American neighborhoods were Americans and, subsequently, Jews. largely confined to the areas directly northeast and northwest of downtown. On June 9, 1910, W. Ashbie Hawkins, a civil rights attorney, purchased a row house at 1834 McCulloh Street, becoming the first African- American to own a home in any predominately white neighborhood. The Baltimore Sun referred to the purchase as a “negro invasion.”3 www.richmondfed.org/community_development | 3 4 | Community Scope | Volume 7, Issue 1 tion ofit.” -HOLC Street MapofBaltimore 1937 Area, nounced degree, undesirable orinfiltra population characterized by detrimentalinfluences inapro neighborhoods, have already happened. They are the thingsthatare nowplace taking intheYellow “Red areas represent inwhich thoseneighborhoods to lending. that Neighborhoods were home to large public housingwere alsocategorized ashazardous thatneighborhoods were subsequently identified with predominantly African-American and neighborhoods conventional financing.In Baltimore, mortgage labeled Neighborhoods “red” were unableto receive to anewreal term: redlining. estate andbanking “hazardous”neighborhood and “dangerous,” leading maps: green, blue, yellow andred. deemeda Red loans. Four colors were usedasclassification onthe financial institutionsfrom being exposed risky to preventing thefederal government andprivate various real estate categories” for of thepurpose mapping 239cities, into dividingneighborhoods HOLCfunction, initiated aprocess of “surreptitiously homeowners facingforeclosure. ofthat As part (HOLC) refinancing to handleemergency to established theHomeOwners’ Loan Corporation theGreatDuring Depression, thefederal government Institutionalized Redlining HOLC Street MapofBaltimore 1937 Area, BALTIMORE HOUSING POLICY 8 - - Impact of World WarII Impact in Baltimore. leadingto worseningmortgages, financialpredation African-Americans were cutofffrom legitimate bank for homeowners wherever minority theylived. As such, class andwealthier —by refusing to insure mortgages excluded African-Americans —even thosemiddle racist covenantsby openlysupporting that largely demarcationinsisted on arigid, inhousing white-black by private lendersfor creditworthy borrowers. FHA homeownership by made guaranteeing mortgages successor to HOLC, was taskedwithpromoting The Federal HousingAdministration (FHA), the were classified. similarly immigrants Baltimoreand Irish ineastandsouthern concentrations ofEastern European, Jewish,Italian and federal leaders pushedpublichousing to relieve of demarcation in existence since 1910. east sideofFulton Avenue, crossing anotherracial line to purchase andrentfamilies started homesonthe began to expire inlate 1944,andAfrican-American population. The first real estate covenantsrestrictive units solelyto housethegrowing African-American specifically identified theneed for over 6,800new required substantial repair orreplacement. determined that 26,000existing dwellings nearly As World War IIconcluded, Baltimore officials practice. segregation was bothlegalandthestandard housing unitsbuiltinBaltimore, were builtwhen 7,000units,nearly more thanhalfthefamily public complexes 1950s. openedintheearly Altogether, 3,000 unitswere for blacks. were for whites, and sixcomplexes containing about dozen, sixcomplexes containing about3,000units and mid-1940swere racially segregated. those Of housing complexes were inthelate constructed 1930s units for lower-income residents. estimated lackedat least9,000housing that thecity the city’s housingandhealthcodes. Planning officials deplorable conditions that were inviolation ofboth city. Many ofBaltimore’s workers lived war-industry in war-related jobsinthe andproduction manufacturing Baltimore whowere attracted by thelarge numberof World War IIbrought afloodofnew people to 11 10 Additional publichousing 9

Twelve public Local, state 12 They

| www.richmondfed.org/community_development | Community Scope | Volume 7, Issue 1 skyrocketed. their tenants andsellthe buildings. Rental rates owners opted notto makerepairs but instead evict was targeted for code enforcement, stricter property ofEastBaltimoreAmericans. After a27-blocksection forof large African- scaledisplacement, particularly However,properties. theplanalsocausedinstances of slumsby fining owners whodidnotcleanuptheir Baltimore Project,” in1953that dramatized thecleanup clearance. film, NBCtelevised adocumentary “The The planwas acclaimed as anational modelfor slum neighborhoods. already cleared over 100blocksofblighted, distressed new standards. 1950, By Baltimore“the Plan” had tocreation enforce HousingCourt oftheCity the building, fire and health code requirements andthe housing reform initiatives: theadoptionofnew The years postwar saw thesuccess oftwo specific residential property. to monitor theuseandownership ofBaltimore Master Plan andacomprehensive housingregistry families. CPHApromoted thecreation ofaBaltimore andraise new acceptable homestoseeking start anticipating theneedsofthousandsservicemen focused onthefuture ofBaltimore’s housingby Citizens Planning andHousing Association (CPHA), civic organizations, suchastherecently established conditions inBaltimore. Even thewar, during certain expansion exacerbated substandard housing industrial The urgent challengesofthewartime The Baltimore Plan broadcast onNBC,1953 ofincrediblyblock badhousing.” -The Baltimore Project, Baltimore, like mostAmerican cities, after isalsoblock paintings. These you would sayare Baltimore. True. But “Gas lighted streets. front Spotless screen steps. Colorful and onefor white residents. housing programs, onefor African-American residents continued to runtwo (HABC) separateCity public racial segregation. The ofBaltimore HousingAuthority the housingcrisis 16 15 while preserving the practice of thepractice whilepreserving 14

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decision that’s to proven to more be important “It’s ofany singlepublic back, hard looking to think, American. 950,000,with24percentwater mark, beingAfrican- Baltimore’s population hadtopped outat itshigh- enough unitsfor residents. thenewminority Baltimore. Even withtheseprojects, andsegregationcluster of poverty around downtown Terrace andMurphy Homes-creating alarge, dense to olderlow-rise -Lafayette projects Lexington Courts, three African-American next publichousinghigh-rises between 1950and1964,HABCconstructed the period and ledto thecreation ofadditionalpublichousing. In lack ofhousingoptionsfor African-American families CPHA research the1940sand’50srevealed during a to form regional housing andplanningagenciesthat dependedoncrossing itspoliticalborders survival Strategy forRegionalRenewal David Rusk’sIn 1995book, wealth ithaddonesomuchto create.” now unableto capture any oftheboomingsuburban for was them.Unlikeinthepast, thecity services poor andneedy—and withoutthetaxbase to provide our metropolitan area saddled withthebulkof moved to indroves, thesuburbs leaving thecore of worse. years, thepostwar In wealthy residents city the consequences, timingcouldn’t“The have been Baltimore.” JimDuffy, authorofthepiece, explained series “100 years: The Twelve Events that shaped ofa the subject The historical reverberations ofthisreferendum were any future geographic growth. annexation area. This effectively from blockedthecity to beapproved by thevoters residing withinthe expansion by Baltimore into City county aneighboring to thestate constitution that requires any future land voters approved 1948,Maryland In anamendment Lines are Drawn Jr. housingcommissioner formerBaltimore City decision.” was shortsighted It avery C.Embry -Robert thenthequestionin1948election. Baltimore City BALTIMORE HOUSING POLICY 17 Baltimore Magazine Baltimore A Unbound: , heopinedthat thecity’s 18 (December 2007) there were stillnot 19

By 1950, By

5 | www.richmondfed.org/community_development 6 | Community Scope | Volume 7, Issue 1 reflecting above-market saleprices.In order above-market reflecting to pay these would offer high-rateto thepurchasers mortgages and loanbanksaffiliated withthe realestate company values thehomesfor inpricing sale. Unregulated savings real estate companies were notconstrained by market and mostimportantly, noappraisal was needed, sothe requiredtransactions neitherrecordation nor settlement, buyer missedonepayment inorder to sellitagain. These express ofrepossessing purpose thehomewhen installmentrigged planswithfinancialtraps for the installment. The financingarrangements were often asthecontract systemarrangement known orland buyersprospective a minority “rent-to-own” financing Consequently,mortgages. offered blockbusters purchasers fromminority obtainingconventional stillprevented often lendingpractices Race-based homes to African-Americans. these real estate sellorrent companies would the quickly at asubstantial discount.the properties Once acquired, becameglutted,market to allowing obtain blockbusters puttingtheirhomesupfor sale, started the quickly the remaining white residents. As thewhite residents residentsminority to play upfears ofracial changeamong redlining. Then, agents would usethepresence ofnew financingbecauseof due to thelackofmortgage afteras itwas difficult desegregation toselltheirhomes their houses. Homeowners would often accept theoffers, generous offers to thefirstwhite residents willing tosell neighborhoods, where investors andagents would float worked inareas closetoBlockbusting expanding black utilizing “blockbusting.” order to maximize theirprofits from housingsales by to exploit theracial residents anxietiesofwhite city in schools. integrating to start itsneighborhood the firstmajorcity case education U.S. inthe1954landmark Supreme Court successfully argued for theendofsegregation inpublic Baltimore native andNAACP attorney Thurgood Marshall Blockbusting cities grow, andunhealthy citiesdon’t.” later. didnotfindit Duffy tobea coincidence. “Healthy referendum andtheillsthat plaguedBaltimore 50years area. between the1948 connection Hemadeadirect formulated initiatives for policy theentire metropolitan BALTIMORE HOUSING POLICY Brown v. Board ofEducation 21 During thisperiod, real During estate companies began

. His hometown. His became 20 blockbusting diminished but did not end. Its lingering lingering diminishedbutdidnotend. Its blockbusting door solicitingby real estate agents; of thepractice ordinanceanti-blockbusting by banningdoor-to- 1960,theBaltimore Council an In City enacted fromAmericans owning homesandbuildingwealth. declineandpreventedurban ageneration ofAfrican- homebuyers. frommarkup minority The system hastened them immediately for a69percent $12,387;exacting Edmondson Avenue for anaverage of$7,320andsold Company,Goldseker of hadbought homesnorth discovered that onedeveloper inparticular, theMorris profitable for developers.In 1969,fairhousingactivists outto turned beeffective and extremely Blockbusting repairs, to fallinto allowing properties decay. on andskimping subdividing homesinto apartments terms, to owners mortgage sometimesresorted usury Harbor. designed to linkto thefuture I-95interchange at theInner designated asthe I-170East-West Expressway and was throughout two decades. thenext The final plan was residents. Moses’ initialconcept was revised several times have involved blocksandrelocating razing 200city 19,000 into thedowntown businessdistrict. The proposal would would bulldoze through Howard Street andCharles and the city. proposed Moses buildingasunkenroad that devise anEast-West Expressway that would cross through to Moses 1945,BaltimoreIn hired master plannerRobert The Highway to Nowhere aCommunity Baltimore: Planners How Killed City where helived.” - Freddie Gray, wound butitputapoisoned intheplace of Sandtown. The Highway to Nowhere didn’t kill riot,alongwiththeadjacent the April neighborhood “ It’s nosurprisethatHarlemPark was hithard by existed inthe Baltimore metropolitan area in1962. complex that notasinglemultiracial apartment segregation complexes ofapartment was so absolute and required payments. weekly Segregation andre- rents andleases. owners Property thenraised rents would white tenants rapidly evict whowere onmonthly When beganto aneighborhood desegregate, landlords effects the continued rentalto impact housingmarket. 23

Jesse Walker, The Wound inWest 22

| www.richmondfed.org/community_development | Community Scope | Volume 7, Issue 1 Development (HCD) offered andderelict theseempty The city’s ofHousingand Community Department HouseProgram. launched theDollar 1973,thecity In problems seemedsolvable. become emblematic ofa “do-it-now” era inwhichall houses acquired through eminent domainthat would row andderelict solution to dealwiththeempty had originally received. conceivedThe city apractical beyond thedepressed value market payment they displaced homeowners withadditionalcompensation subsequently approved legislation that provided negative taxrevenue. General Assembly The Maryland were eyesores withsignificant maintenance costs and boarded housesthat had notbeendemolishedand demolished anddetermining thefuture ofvacated, compensating thoseindividualswhosehomeswere problems created –justly project by thedefunct Baltimoreconstruction, officialsfaced two specific After canceling theI-170East-West Expressway The DollarHouseProgram “Highway to Nowhere.” to by localsas Ditch”“the asthe butisbetter known the West Baltimore Amtrak referred isoften platform. It beforeneighborhood coming to anabruptendnear through awidetrench cutthrough aresidential expressway emerges from downtown runningwest thatproject now exists. The stubofthe orphaned of thehighway, I-170 ofthedefunct theonlyportion disappeared by a2.3-milesegment 1971to construct residents owned theirhome. 900houseshad Over communitiesAmerican inwhich74percent ofthe Park, ofRosemontandHarlem neighborhoods African- come soon enoughto rescue the West Baltimore Unfortunately, thedemiseofexpressway didnot adecadelater. nearly project theEast-West succeededSCAR inkilling Expressway neighbors’ homesandbusinesses from destruction. Committee Against to (SCAR) protect theRoad her formed worker theSoutheast activist, and community Former thenasocial U.S. Barbara Mikulski, Sen. locatedneighborhoods eastofdowntown Baltimore. opposition inthepredominately white andethnic oftheproject. Canton aspart This ignited community Boston andElliottstreets of intheneighborhood razed 1968,thecity about300rowIn housesalong 24 reputable contractors, architects andotherbuilding matchmakers to pairthenewhomeowners with as staffserved addition,specialized city In have beenunableto afford. could purchase ahousethat theymight otherwise did notrequire asubstantial down payment, andthey homesteaders, thedealwas too goodto refuse, asit at 4percent sotheycould rehab thehouses. For the relend themoneyitraised to homesteaders theurban issue nontaxable bondsat 3percent interest andthen up theirendofthebargain. To doso, would thecity andhold to finishthe the financialcapability project had to make sure theprospective homeowners had in themfor oftime. aspecifiedperiod new owners would promise to rehab themandreside to properties “urban homesteaders” for adollarifthe renovation guidance. dedicated andwell-staffed office city that provided availability oflow-interest loansanda city-backed wholeblocks,contiguity of housesinself-contained key factors, including proximity to downtown, the He attributed thesuccess oftheprogram to afew Barre’ssuch asOtterbein, Circle andRidgley’s Delight. in thedemandcreated for neighborhoods impacted values and ofitssuccess isseenintheproperty legacy Braverman.Housing Commissioner Michael properties,”city-owned current acknowledged withaconcentrationneighborhoods ofunoccupied, lived initiative that helpedrevive ahandfulof HouseProgram Dollar “The was asuccessful short- program. ofthehomesteading at bargain prices aspart The sameday, sold299abandonedbuildings thecity the West Baltimore ofHollinsMarket. neighborhood bought adilapidated of houseinarundown section in atent, until shereached thefront ofthelineand now.’’ She hadwaited onlinefor eight days, sleeping don’t makeawholelot-Ionlyabout$20,000 ‘’I was asingleschoolteacher andteachers inBaltimore teacher told kindergarten was to homestead,’’ Catherine Van Allen, aBaltimore and otheramenities. onlyway Icould getahouse ‘’The historic featurespreserving sidewalks suchasbrick by plantingequity trees, landscapingstreets and return for thetechnical assistance, residents didsweat trade professionals In thework. whocould perform BALTIMORE HOUSING POLICY 26 29

The

New York Times 25 also The city 27 The in1986. 28

7 | www.richmondfed.org/community_development 8 | Community Scope | Volume 7, Issue 1 2005 rulinginThompson v. Court, J. Garbis, U.S.District HUD, Carroll,Harford, andHoward counties.” -JudgeMarvin contiguous Arundel, region, includingAnne Baltimore, reservation foruseasacontainer ofa forallthepoor viewed shouldnotbe “Baltimore asanisland City public housing residents to communities with low ProgramMobility are thesubsidized relocation of The two maincomponents to theBaltimore Housing 1990s. at relocating low-income theearly familiesduring for Fairto Opportunity HousingProgram aimed oppositionthatand community halted HUD’s Move as inconspicuously aspossibleto avoid thepolitical discreetly rolled out. The program operates purposely one ofthenation’s largest relocation initiatives, was mandates, Program, theBaltimore HousingMobility the Baltimore Metropolitan Region. To outthese carry throughout neighborhoods located inincome-diverse siteshigh-rise andat individualscattered site houses families bothat theredeveloped former public for over housing opportunities 3,000impacted approved in2005,required HABC to provide new consent decree inthe A partial system ofpublichousing. over many decadesto create adeeplysegregated andHABC,withHUDapproval,city inconcert acted plaintiffs includedabroader historical claimthat the both rental andhomeownership units. The multi-income townhouse communities that included andconvert themfromthe city towers high-rise into six publichousingcomplexes located throughout Hope VI initiative, whichenabledHABC to demolish Developmentand Urban (HUD) hadfundedthe levels ofsegregation. The U.S. ofHousing Department replacement withsimilar housinginneighborhoods public housingdevelopment, withplansto locate triggered by theproposed demolitionofahigh-rise housing desegregation cases, the lawsuit, African-American publichousingresidents, 1995,theACLU,In onbehalfofaclassBaltimore Thompson v. HUD BALTIMORE HOUSING POLICY

31 Thompson v. HUD. 30 Similar to otherpublic Thompson Thompson case,

Thompson filed casewas

a

University, to aconference speaking inBaltimore, 2016 Patillo,increasing it?”-Mary professor, Northwestern Land Trust? publichousingandinfact you Are preserving a range offamilies. Buthave you created aCommunity make sure thatallthenewdevelopment isavailable for zoning isanat-minimum strategy“Inclusionary to defeated in2017 by avote of6-1. Housing Choice Voucher recipients. The billwas rent to tenants withfederal rental subsidies, including council that would prohibit landlords from refusing to The county alsobrought forward legislation to their forprimarily low-income African-American families. ofaffordablethe construction housingunitssetaside where county government policieswillencourage The identifies agreement 116 census tracts further current program. programa mobility Baltimore modeledafter City’s in prosperous andto county neighborhoods start homes for low-income African-American families agreed to setupa$30millionfundto helpbuild1,000 Sun The complaint accused thecounty ofperpetuating Baltimore County underthefederal Fair HousingAct. Inc. filedahousingdiscrimination complaint against Branch oftheNAACP, andBaltimore Neighborhoods 2011,threeIn county residents, theBaltimore County waiting listthat hasbeenclosedsince 1,2017. April households. An additional14,574familiesare ona to 3,832families, with12,421peopleinthoseleased Programof December 2017,theMobility hasleased rent subsidiesgeared toward costlier county rents. As “opportunity areas” receiving special withparticipants Thompson Housing Partnership, anonprofit established by the program isadministered by theBaltimore Regional finances and landlord relationships. The mobility populations andcomprehensive counseling on levels ofsubsidized and/orminority housing, poverty After nearly fiveAfter nearly years ofnegotiations, affordable optionsinprosperous neighborhoods. subsidies by notimplementing policiesto expand segregated clusters ofrenters withgovernment reported inMarch 2016that reported Baltimore County settlement. It resettles participants in resettles settlement. participants It 33 34 The

Baltimore 32

| www.richmondfed.org/community_development | Community Scope | Volume 7, Issue 1 using either density bonusesorcashpaymentsusing eitherdensity from offset the costs oftheaffordable units for developers, The fatal flaw inthe ordinance agreed isthat thecity to correlated to medianincome. of aproject’s unitsaffordable, basedonascale requires developers to keep10percent to 20percent rate withmore projects than30units. The IHordinance a subsidyorthedeveloper seeksrezoning for market- eitherprovidesBut itistriggered onlywhenthecity housing ordinance, whichwent into effectin2009. in 2007ultimately secured passageofaninclusionary (IH) ordinance. Working council, withthecity CPHA to itsroots to Housing advocate for anInclusionary and publichealthcodes inthelate 1940s, returned campaigned to modernize Baltimore’s fire, building CHPA, samecivicreform thevery organization that in Baltimore. plays aminimalrole inaffordable housingproduction bonuses are notindemand. Consequently, zoning permitted, plans maxoutat thefulldensity sodensity lots are relatively easyto acquire andfew building housing communities. This islargely becauseadjacent units for low- residents andmoderate-income innew tools to encourage orcompel developers to include in 2016, Transform Baltimore, provides few leverage Baltimore’s newcomprehensive zoning code adopted employment centers schools. andquality andnotnear bywell publictransportation served blighted by boarded structures, andderelict not housing stock isoldanddecaying inneighborhoods to HCD, notquantity. buttheissueisquality The excess ofvacant units, approximately 16,000according not have an zoning“inclusionary law.” Baltimore hasan subsidies.”use direct new affordable housing, unlikeotherprograms that growthmarket to encourage developers to produce households”;moderate-income and(3) “capitalize on in amarket-rate residential development for low-or incentivize ofunits developers to setasideaportion and, lesscommonly, homeowners”; (2) “require or is affordable renters,for low- andmiddle-income (1) “impel developers to produce more housingthat three roles: serve zoning policiestypically Inclusionary Ordinance Baltimore’s Housing Inclusionary 35 Strictly speaking, Baltimore speaking, does Strictly then unitsdon’t getbuilt.” to, doesn’t ifthecity putupmoneyto subsidize units, Affairs& Urban Committee, stated really boilsdown “It Councilman oftheHousing BillHenry, then-chairman new homesbeingexempt from IHordinance. anddowntown, Harbor the Inner withmostofthese or approved since around 2010inneighborhoods unitshavemarket-rate beencompleted andluxury administer theordinance. More than9,000new HousingBoard establishedto to theInclusionary have beencreated underthelaw sofar, according ordinance. exempting from projects thefullprovisions oftheIH commissioner was empowered to provide awaiver fund lacksadedicated fundingsource, thehousing bonusesarethe density rarely applicableandthe housingfund. However,a newinclusionary since vacant, abandoned and tax-delinquent properties vacant, properties abandoned andtax-delinquent nonprofit corporation focused onthe conversion of a LandBankAuthority, or aquasi-government entity Mayor SheilaDixon in2008proposed thecreation of quickly.to demolishproperties city’s to sellor efforts delinquent taxsalesalsostymied any effective sales . State laws governing the property,sale ofany singlecity-owned whichdoomed council tocity approve anordinance to authorize the complicated matters further by requiring the charter across different branches ofgovernment. The city fell ofoffices tothese properties spread avariety potential purchasers, rehabbers anddevelopers of outcome.an uncertain The responsibility to identify atime consuming processthe owner incourt, with legal recourse at thetimewas to prosecute orsue responsible for avacant structure, thecity’s only orderIn to owner holdarecalcitrant property roadblocks. efficiently were hindered bybureaucratic andlegal to reduce thenumberofvacant, blighted structures with Baltimore television programs. ongritty Efforts houses hadbecome associated theimage mostoften which were asof2010. city-owned, over 16,000vacant buildings, roughly 25percent of residents since 1950,Baltimore was challengedwith apopulationExperiencing lossofalmost350,000 AuthorityLand Bank BALTIMORE HOUSING POLICY 36 Consequently only32affordable units 38 39 Blocksofboarded 37 City City

9 | www.richmondfed.org/community_development 10 | Community Scope | Volume 7, Issue 1 entity andaperceivedentity anddiscretion lossofauthority to opposition over costs ofanew thepotential startup However, thelegislation council due stalledinthecity authorize thecreation ofaBaltimore landbank. charter,amended thecity viastate legislation, to ), theDixon administration successfully (City ofFlint), andCuyahoga County, Ohio(City of County, Genesee banks inDetroit, Michigan, Michigan into productive use. Using successful examples ofland attract newbuyersattract andresidents. ratescrime which and publicschoolperformance, housing andsufficiently stableemployment rates, Neighborhoods” are communities withaffordable show for amarket redevelopment. These “Middle that basedon neighborhoods public intervention to target single vacant property classifies every by usingadetailedHousingMarket Typology that buildings inBaltimore’s neighborhoods middle-market buyers for renovation. The program targets vacant receivercourt-appointed to sellthemto prequalified and place housesinthehands ofa their properties compelproperties, private owners to renovate to eliminate blight, expedite thesaleofcity-owned focused program that employs ofstrategies avariety V2V isamarket-based, geographically data-driven, Vacants to Value (V2V) Community Progress, 2017 one handandlimited resources ontheother.” facing theparallel challengesofdauntingneedsonthe intheUnited States is city for othercities. Almost every “ the Vacants Program to in2010. Value (V2V) governmental structure. The result was thelaunchof sales anddispositionprocess withintheexisting city enforcement process andcreating efficienciesinthe was terminated infavor ofreorganizing thecode Consequently, in2009,thelandbankinitiative process to alandbank’s functions. involvement community about ensuring andanopen land bank. werethese functions delegated to anindependent if over districts intheirelected thefate ofproperties BALTIMORE HOUSING POLICY V2V is not only important forBaltimore, butasamodel V2V isnotonlyimportant 40 In addition,civicgroups In voiced concerns

41 - Center for V2V alsoestablishedCommunity Development are ignored. program called “receivership” repeated after citations of anaggressive saleaspart mandate acourt-ordered canissueacitation toSCEN, thecity compel repairs or rehabilitate withoutever goingto court. Within a strong to neighborhoods inotherwise properties by neighborhoods forcingmarket scattered vacant Enforcement (SCENs)inmiddle- Neighborhoods buildings. designatedThe city Streamlined Code time ittakesfor buyers to taketitleto city-owned process. The changeshave reduced theamount of establishing aclear, andtransparent predictable andimprovementmarketing policy ofpricing throughowned reorganization, properties increased The program streamlined thedispositionofcity- also asserted that the city potentially that thecity overstatedalso asserted the difficult butthestudy inthe housing market, recovery that differenceV2V hasmadeanimportant a during Abell Foundation inNovember 2015 alsoconcluded of the V2V program. would nothaveproperties beenreused inthe absence Center for Community Progress believes that these enable strategies to leverage private resources. The to productive useinareas where conditions market effective in been very returning vacant properties abandoned properties. foundThe that report V2V has on successful strategies to address vacant and for Community Progress, anonprofit that focuses evaluation of performance V2V from the Center commissioned afive-year 2017,thecity In housing value. of creative long-term non-housinguses--to support targeted demolition,acquisition promotion andactive implementedthe city amixofstrategies --including vacant homes. For entire severely distressed blocks, incentives to encourage thepurchase ofpreviously and federal programs offering homeownership targeted oflocal, addition,thecity avariety stateIn Barclay, Oliver andPatterson neighborhoods. North hasdesignatedThe city 24clusters, includingthe rehabilitating for market-rate properties saleorrental. areas ofstrength, have drawn developer interest in oftheir proximitypresent to butwhich,by virtue andotherdistressvacant conditions properties are Clusters asareas where alarge concentration of 42 43 An earlier report issuedby the report An earlier

| www.richmondfed.org/community_development | Community Scope | Volume 7, Issue 1 privately owned butfederally subsidized. HUD Both willbe of 2018,theformer publichousingproperties operated withsubstantial energy efficiency. Bytheend the sale, theunitswillberenovated, upgraded and improvements at thepublic housingfacilities. After to finance much-neededcapital of theproperties housing facilitiesinorder to leverage thevalue approximately 4,000unitslocated at 22ofitspublic authorized HABCtoRAD sellto private developers units. 8 convert publichousingunitsto long-term Section Rental Assistance Demonstration (RAD) program to asoneofthefirstcities to implementselected HUD’s dwelling unitsinitsinventory. 2013,Baltimore In was improvements neededfor theapproximately 10,000 ofrepairs and HABC faced backlog anenormous by thefederal government over thelasttwo decades, than 12,000households. to Due chronic underfunding programs referred (often to as 8”)to more “Section across andadministers rental thecity voucher HABC operates about10,000publichousingunits Rental Assistance Demonstration (RAD) at landbanks. compelling reason for Baltimore to takeanotherlook land banks’ to access ability andleverage capitalisa government. ultimatelyThe concluded report that that landbanksarefact separate entities from alocal demolition andrenovation andnotnecessarily by the success isdetermined largely by access to fundingfor as Detroit andCleveland andconcluded that their such inotherjurisdictions of landbankauthorities comparedThe report the V2V modelwithareview is amajorimpediment to theprogram’s success. of loansto finance extensive rehabilitation costs Abell’s noted that thelimited availability further report interaction withtheprogram. purchased by investors ontheprivate without market of to bepart V2V’shouses purported success were repairs were 300 made. addition,nearly In actually forbuilding permits renovation to prove whenorif thatbased onmore hadno than200properties completed properties. The report’s findings were includedinthecity’shundreds ofproperties listof itself was notthecatalyst for theredevelopment of of impact V2V. statedThe that report theprogram 46 45 44 should never beusedto deprive others oftheir statement says they “believe that landownership affordablequality housing. Their organizational vision plan to addressa specificaction Baltimore’s lackof to propose andlocaluniversities seeking experts associations,community religious institutions, policy in 2013asacoalition ofnonprofit developers, The Baltimore was HousingRoundtable formed The Baltimore HousingRoundtable mistreatment managers. by property including grievance procedures from potential They safeguards have sought andprotections, further this isprivatization andphasingoutofpublichousing. affordable advocates housinganddisability fear that be operated asiftheywere publichousing;however, and HABCinsistthat underRAD, will theseproperties which belongs to thelandtrust. home butleases thelandonwhichhome sits, arrangements, theowner holdsthedeedto hisorher a 99-year renewable ground lease. Under these on landthat isleased from theCLT through typically possible for limited-income householdsto own homes the affordability ofhousing onthat land. CLTs makeit of for preservation benefitsandperpetual community whose missionincludespermanent storage ofland CLTs are nonprofit, organizationscommunity-based affordabilityestablishing perpetual inBaltimore. Land Trusts (CLTs) as arecommended modelfor prominentlyThe report features Community affordable housing. fundsannuallycommittedin city for permanent vacantjobs to deconstruct houses, and$20million fundsannuallycommittedcity for community-based advance anewdevelopment approach: $20million in strategy. recommendedThe report a “20/20 Vision” to ofacomprehensive developmentas part community community-controlled, affordable perpetual housing Displacement + Land +Trust, Tools Without forDevelopment released 2016,theRoundtable areport, In or aesthetics.” housing, recreation, agriculture, sustainableindustry and control land, andputitto productive usefor “envision areas where inthecity communities own fundamental right to housing” andtherefore they BALTIMORE HOUSING POLICY , whichadvocates for prioritizing 48 49

50 47 Community 11 | www.richmondfed.org/community_development 12 | Community Scope | Volume 7, Issue 1 Curtis Bay andBrooklyn. Curtis CLTs ofRemington, intheneighborhoods Waverly, inventory. There areto potentially efforts establish the initialprocess ofacquiring thefirsthomeintheir Land City the Charm Trust. entities Both are onlyin EastHousingInitiative and of June2018,theNorth CLTsare onlytwo Baltimore-based inoperation as housing affordability isstillinitsnascent stage. There Baltimore’s experience withCLTs asamechanismfor charter amendment language for legalapprovalcharter for 2016, theHousingfor early AllIn Coalition drafted minimum of30years. funded by theAHTFmustremain affordable for a 20 percent ofAMI. Furthermore, allrental housing householdsat orbelowpercent ofthoseunitsserving incomes at orbelow 30percent ofAMI, including25 householdswith units inany serving period three-year of Area (AMI) Income Medium withat leasthalfofthe householdswithincomes at orbelowserve 50percent commissioner. Proponents intended for theAHTFto commission membersandtheHCD of11community administered by HCDandgoverned by anappointed create fundsinto and direct theAHTF. to empower both themayor council to andcity costs. amendment was draftedpurposely The charter related aswell services, asadministrative andplanning creation landtrusts, ofcommunity affordable housing capitalandoperatingactivities, assistance for the municipal bonds, could beusedfor predevelopment of affordable housing. The AHTF, whenfundedthrough assistance for maintenance production, orexpansion to establishanAHTFto provide Charter City financial “Housing for All: Baltimore” to amendtheBaltimore place, mounted a2016campaign called supporters to putcomponents ofthe20/20 Seeking Vision into (AHTF) The Affordable Housing Trust Fund 2016 ofMaryland, Network that.”oppose Ramos, -Odette Community Development the poorest ofthepoor. Idon’t seehow anybody could J….This trustfundwouldQuestion onthosefolks... focus proposed onballotsas amendmentwillappear “The BALTIMORE HOUSING POLICY 53 51

52 The AHTFis

12-person commission that oversees theAHTF. mayor council to andcity nominate andconfirm the with dedicated revenue withthe aswell asworking currently inprogress, isaboutcapitalizingthefund ballot initiative that establishedtheAHTF. Phase Two, two phases. Phase Onewas passageofthe securing The Coalition envisioned thecampaign asfallinginto AHTF. to approveoverwhelming J, Question establishingthe J.” Eighty-three percent ofBaltimore citizens voted presented to voters inNovember 2016as “Question amendment to referendum. The amendment was groupsand community mobilized to petitionthe immigrant rights organizations, housingdevelopers organizations from groups, housingadvocacy unions, the ballotmeasure. Adiverse coalition ofBaltimore of using city revenueof usingcity the streams to underwrite to to recruit studythefeasibility ateam ofexperts The recommendations encouraged theproposed CDA public tools withnewprivate financial resources.” investment dollars andimproved to link capacity of publicfinancing tools to create more immediate allow for increased and flexibility “innovative uses Community Development (CDA),” Agency whichwould reorganization ofHCDto create “a quasi-public recommended a further The transition report commissioner leadingHCDindependently from HABC. Bravermanand Michael was namedthenewhousing June 2017,thetwo housingagencieswere separated apply for federal fundingandadditionalresources. entities, theywould better to maximize theirability for heradministration, arguing that astwo distinct cited theseparation priority oftheagenciesasanearly Housing.” campaign, Mayor herelection Pugh During as under asinglebrand andlogoknown “Baltimore commissioner/executive director, andtheyoperated HABC were administered intandemby asingle agencies. Since thelate 1960s, Baltimore’s HCDand ofthecity’sfundamental restructuring two housing recommendedInstead, thereport aseparation and the Baltimore orthe20/20 HousingRoundtable Vision. in 2016,thePugh Transition didnotmention Report With ofCatherine E. Pugh theelection asnewmayor Policy TodayHousing 54 56 55

In In

| www.richmondfed.org/community_development | Community Scope | Volume 7, Issue 1 affordable housinginitiatives. The funding would be of $10million in future bondmoney to fund approved December 2017,thecity In theallocation revenue to the AHTFexclusively. permitted the council through legislation to direct history, amendment the firsttimeincity thecharter or increase theamount offundsappropriated. For bills, buttheycould notintroduce abilloftheirown the amount appropriated inthe mayor’s spending council memberscould approve, disprove orreduce through thebudgetandappropriations process. The to any specificprogram to themayor oragency exclusively thepower reserved to appropriate funds fund only. Baltimore’s strong mayoral system had to theflow directing of revenue to the city’s general and fees, thecouncil hadrestricted butthecharter always to create hadtheauthority orraise newtaxes amendment. the AHTFcharter The legislative body withtheadoptionof expanded spendingauthority approved, andvoters hadgranted thecouncil night in2016—theAHTFhadbeen on election Affordable housingadvocates hadmuch to celebrate government.within thecity butnot asanagency closely aligned withthecity operate asanindependent nonprofit organization Transition to isintended establishaCDA. to It Report established from therecommendations ofthePugh Investment FundThe Impact Neighborhood was process to yieldabout$55million. bonds for investors to purchase. this expects The city Corporation, float whichwillinturn city revenue Economic Developmentgarages to theMaryland the moneyfor parking thefundby leasingcity-owned new investment for decades. planstoThe acquire city that neighborhoods have incity lacked opportunities million into creating housing, recreation andbusiness announced aplanto 2018,thecity investIn $55 Detroit. inPhiladelphia,land bankauthorities Cleveland and capabilities, tools andresources that are utilized by seemedto someofthevery describe the report demolition authority. Without stating itexplicitly, to explore theorganization ofaspecialpurpose financing andothermunicipalfundsources and expansion ofgeneral obligation bonds, taxincrement 57 59 58 members approved legislation to fundtheAHTF. December 2018,MayorIn Pugh council andcity loan programs andsubsidies. housing and seniorsintheirhomes”“keeping through ofexisting moderate-rent but alsothepreservation to for newhousing constructed low-income families, Braverman explained that hewas referring notonly housing, broadly defined.”By usingthe word,“broadly,” leveraging closeto $40millionayear for affordable he told the board, asacity,“but, we’re spendingor had expected. “Clearly we aren’t meetingtheneed,” before theboard that thiswas notwhat advocates Braverman histestimony during acknowledged the Community Land Trust. HousingCommissioner sought by theBaltimore for HousingRoundtable is significantly lessthanthe$40millionannually however, itisnotexplicitly directed to theAHTFand available in2019andcontinue through mid-2021, movements organized at level the neighborhood housing haslargely beenled by community-based Baltimore,In to provide theeffort fairandaffordable in one’s life extends economic ofhousing future andhow theimportance that onegrows upinmay shapean individual’s Insights, hasdemonstrated how theneighborhood Project, asOpportunity now known Opportunity to different outcomes. For example, of the Equality to demonstratean effort how housingis connected exception. recent In years, however, there hasbeen ofBaltimorebeen madeinisolation, andthecity isno Historically, intheUnited States housingpolicy has Conclusion social workers. once homeless, low-income housingresidents and developers, real estate professionals, peoplewhowere AHTF. The commission includesprivate andnonprofit slots onthe12-membercommission overseeing the also appointed member allofthe11community by theBaltimore HousingRoundtable. Mayor Pugh funding goalofthe20/20 Vision campaign launched trust. would provide atotal of$20millionayear to the million to $7millionannuallythat, by fiscal2023, Additionally, themayor hasagreed to allocate $2 taxes are estimated to generate $13millionayear. of real estate salesexceeding $1million. The excise imposes excise taxes onthetransfer andtherecording According to 61 The $20millionfigure was theoriginal annual BALTIMORE HOUSING POLICY The Baltimore Sun beyond ameansofshelter. 60 , thenewordinance 62 13 | www.richmondfed.org/community_development Conclusion 14 | Community Scope | Volume 7, Issue 1 Marshall, began to dismantle discriminatory Marshall, beganto dismantle discriminatory includingBaltimore’srights activists, own Thurgood ordinances inthenation. Later generations ofcivil by approving oneofthefirsthousingsegregation to Hawkins’ andto otherissuesinthecity action neighborhood. The Baltimore Council City responded an invisible racial lineto purchase ahouseinwhite 1910, NAACP attorney W. crossed Ashbie Hawkins inthefederal advocacy In and by courts. skilled residents. among thecity’s low-income andunderserved key tool for increasing economic mobility, particularly remains awork inprogress,policy itcontinues to bea housing discrimination. Though Baltimore’s housing Trust Fund to address inaneffort thecity’s of history a multiyear agreement to fundtheAffordable Housing led to aballotinitiative, Baltimore leadersannounced Recently, following abroad grassroots coalition that accomplished through discreet efforts. outcomes communities. insuburban But, this was only of concentrated to achieve inthecity positive poverty is beginning to show results from moving familiesout Program, formed asaresult of afederal decree, court to Value initiative. The Baltimore HousingMobility own localinnovative strategies, suchasthe Vacants Housingordinance, their orcrafting Inclusionary to reverse by adoptingideas, thelegacy suchasan ofBaltimoreThe city hasendeavored over theyears government policiesandprivate customs. market imposedby housingpractices discriminatory as incremental to efforts reverse decadesof Today, Baltimore’s canbecharacterized housingpolicy neighborhoods. and isolation ofminority housing complexes hastened abroader divestment suchashighwayprojects andpublic construction propelled Public asblockbusting. by suchtactics works moved away from intheyears thecity that followed, desegregate itsschools, butthousandsofresidents As aresult, Baltimore to becamethefirstmajorcity ordinances caseshard through fought court andwon. BALTIMORE HOUSING POLICY Federal BankofRichmond. Reserve For comments andsuggestions, we thankstaff at the Acknowledgements of Richmond. development managerwiththeFederal Bank Reserve isaregionalanalyst and Peter community M.Dolkart isaregionalAnne A.Burnett economic outreach About theAuthors

| www.richmondfed.org/community_development | Community Scope | Volume 7, Issue 1 35  34  33  32  31  30 Pietila, 305. 29 Ibid. 28 Ibid. 27  26  25  24 Ibid, 484-487. 23 Crenson, 458. 22 Pietila, 175. 21 Pietila, 121;Crenson, 422. 20 Ibid. 19 J 18 Crenson, 505. 17  16 Crenson, 417-418. 15 14  13  12 Pietila, 86. 11 Ibid. 10  9 Pietila, 79. 8 7 Pietila, 48-49. 6  5 Pietila, 25;Power. 4 3 Pietila, 6. 2  1  Endnotes library.jhu.edu/handle/1774.2/32621 “Residential Security Map ofBaltimore Map Md,”“Residential Security Baltimore: Johns Hopkins University Press,Baltimore: JohnsHopkins 2017,342. T Econ Focus “Conflagration inBaltimore,” Richmond Bankof FederalReserve Great American City Baltimore Sun Pietila, A.Crenson, 31;Matthew Antero Pietila, Jacques Kelly, “Slave orfree, oncity,” blacksmadeanimpact he Baltimore Sun Baltimore Style,” spotlight_2018_issue2 development/5th_district_spotlight/2018/5th_district_ 2, the U.S. andtheFifth District discrimination bill,” The Baltimore Sun December 2017. some escapeto suburbs,” Donovan,Doug “Housing policiesstillpinpoorinBaltimore, but accessed at Century,” 19,2017. Oct. CouncilCity Bill17-0037R –A House’‘Dollar Program for the21 (sic),” 2017. bringing back House’‘Dollar program,” 142. Urban U.S.Since 1950, The Baltimore Sun Ibid. accessed at in Baltimore,” Reader, Indypendent Summer2006,Issue1. patterns ofgrowth for years,” decisions onpublichousinginthesegregated 1940sinfluenced Federal BankofRichmond, Reserve Zoning in “Inclusionary Pamela Wood, “Baltimore County Council housinganti- rejects Donovan,Doug “Baltimore County to housingsegregation,” curb Data provided by theBaltimore HousingRegional Partnership, Baltimore Housing, Program,” Baltimore HousingMobility “The Braverman,Michael HousingCommissioner, “Memorandum – Hinds, Decourcy Michael “Baltimore’s Homestaeding ofCity Story Luke Broadwater, “Baltimore Council City on planshearing Steve Kilar, “Baltimore’s population up, following decadesofloss,” Citizens Planning &HousingAssociation, “Accomplishments,” Gladora,Ibid, 83;Chris HousingPolicy andSegregation “History: Siegel,Eric “Baltimore: Testimony inafederal reveals trial how December 2007,124–127. ames Duffy, “Baltimore sealsitsborders,” https://www.richmondfed.org/publications/community_ The NewYork Times , Fourth Quarter 2015. , Fourth Quarter http://www.baltimorehousing.org/resident_smbvp http://www.cphabaltimore.org/accomplishments/ , Aug. 23,1994. Not in My Neighborhood: How Bigotry Shaped a Shaped How Bigotry Neighborhood: Not inMy , Dec. Power, 20,1910;Garrett “ Maryland Law Review Maryland , March 15,2016. , March 14,2013;JohnR.Short, , Chicago: Ivan R. Dee, 2010, 9; Karl Rhodes, R.Dee,, Chicago:Ivan 2010,9;Karl The Baltimore Sun Syracuse: Syracuse University Press, 2006, . , Jan.1,1986. The Baltimore Sun ,” 5 ,” The Baltimore Sun Baltimore, APolitical History th District Spotlight District . , Aug. 1,2016. , vol. 42,no. 2,299. The Baltimore Sun Baltimore Magazine https://jscholarship. , Dec. 15,2005. , Dec. 11,2003. Alabaster Cities: , 2018,Issue , Oct. 23, , Oct. , The , . st ;

45 44  43  42  41  40  39  38 Ibid. 37  36 Baltimore Code, 2B. City 2017,Article 62  61  60  59 Ibid. 58  57 56  55  54 53 Ibid. 52  51  50 49 48  to47 Right HousingAlliance: 46  https://boe.baltimorecity.gov/boe-past-results “2016 General Election Results Summary Report” Summary Results accessed“2016 General Election at Ibid Foundation, November 2015,accessed at renovation fundsandquestionableaccounting,” Abell modestprogress ismaking elimination despite effort limited communityprogress.net for Community Progress, March 2017,accessed at An Evaluation ofBaltimore’s Vacants To Value Program,” Center vacantstovalue.org/About.aspx Development, “Vacants 2 Value –About,” accessed at Francisco,Bank ofSan 2016. Neighborhoods 2009. low, U.S. Census says,” new developments,” opportunityinsights.org/ affordable housing,” housing,” May 2,2018. investment fundby leasinggarages,” Ibid uploads/2017/03/Pugh-Transition-Report-Final.pdf 27, accessed at housing officials fund, 10-14. org/clts_in_baltimore Baltimore,” accessed at Ibid Ibid baltimorehousingroundtable.org Housing Roundtable, 2016,5,accessed at Tools for Development withoutDisplacement,” Baltimore oversight,” Joan Jacobson, “Vacants to Value: Baltimore’s boldblight- Allan Mallach, “Tackling The Baltimore: ChallengeofBlight In ofHousingandCommunity Baltimore Department City Paul C.Brophy (editor), Annie Linskey, “Land bankdebated,” Natalie Sherman, “Baltimore population falls, a100-year nearing Natalie Sherman, “Despite rule, few affordable unitscreated in See See Jean Marbella, “Baltimore agrees to ‘historic’ funding of Reutter,Mark “Mayor approves $10millionfor affordable Carley Milligan, “Baltimore creating $55millionneighborhood Mayor Catherine E. Pugh Transition (2017),26- Report Jonathan Munshaw, “Pugh ‘very, close’ very to namingtwo top Baltimore Charter, City I,§14-Affordable Article housingtrust Baltimore HousingRoundtable, “Community Land Trusts in Peter Hill, andMatt Sabonis “Community +Land Trust: David Prater, “Baltimore publichousingplanneedsscrutiny, , 22. . , 24. . http://www.equality-of-opportunity.org/ BALTIMORE HOUSING POLICY Baltimore Brew The Baltimore Sun , The Assembly American and The Federal Reserve http://transitchoices.org/wp-content/ , ” Baltimore BusinessJournal The Baltimore Sun The Baltimore Sun . The http://www.baltimorehousingroundtable. On theEdge: America’sOn Middle . , Dec. 13,2017. .

Baltimore Sun http://rthabaltimore.org/rad/ , May 22,2017. . . The Baltimore BusinessJournal , Aug. 13,2018. , Dec. 27,2014. , March 23,2017.

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