Public housing has long been a tool for governments to create and preserve affordable shelter, but many public housing complexes today are under threat.
After decades of neglect, many public housing developments have fallen into disrepair. Others have been demolished and replaced with market-rate housing units, especially as surrounding communities experience gentrification.
Once the most important tool for housing low-income families, public housing now makes up a shrinking share of the affordable housing options in the DC region and nation. Today, about 7,300 families in the District live in 40 public housing developments managed by the DC Housing Authority (DCHA).
In this explainer, I examine the challenges facing the current stock of public housing in the District.
Public housing developments were the United States’ earliest form of affordable housing
In 1937, Congress passed the National Housing Act, which authorized the construction of public housing. The program was viewed as a way to jumpstart a slow economy in the aftermath of the Great Depression.
Initially, many public housing developments housed moderate-income families. However, demographic shifts resulted in changes to the composition of public housing. As poorer families moved to the city, where much of public housing was, and middle-class ones fled to the suburbs, public housing developments came to house an increasingly poorer set of households.
By the 1970s, the federal government halted the construction of new public housing developments
At this point, many existing developments had fallen into disrepair because they were poorly maintained.
Critically, policymakers realized that public housing concentrated poverty in certain neighborhoods by creating dense buildings comprised exclusively of low-income families. It contributed to racial segregation and limited opportunities for households to move to better communities.
Over the next couple decades, many public housing developments would continue to provide affordable housing, despite their deteriorating conditions. Others would be torn down and replaced with mixed-income housing developments.
During this period, housing vouchers would replace public housing as the primary tool for housing low-income Americans.
About 1.2 million households live in public housing in the US. Here are the numbers for our region:
As noted above, only 7,300 families in the District live in public housing developments. There is a long wait-list of families waiting to get into public housing.
Some of these are low-rise complexes spread over multiples buildings, like the Barry Farm development in Ward 8. Others are single, high-rise buildings, like Claridge Tower in Ward 2.
While the DC Housing Authority manages the public housing stock in the District, much of the funding to maintain and repair these buildings comes from the federal government. In the region, housing authorities in Fairfax, Alexandria and Montgomery County also manage a substantial number of public housing units.
Public housing provides stability for many families that would face the highest risk of housing instability or eviction on the private market
Like households with housing vouchers, housing costs are kept affordable for public housing residents by limiting the rent to thirty percent of their income.
According to a recent report by the DC Fiscal Policy Institute, the average income for a family of four living in public housing in the District is $16,050. (The federal poverty threshold for a family of four is $23,850.)
Ninety percent of households in public housing have an income below $32,100 annually, which is 30 percent of the AMI.
Households living in public housing are disproportionately headed by the elderly and people with disabilities. In fact, the DC Fiscal Policy Institute reports that fully one-third of households in public housing are headed by a senior citizen.
About twenty-two percent of households in public housing are headed by an adult with a disability.
Public housing developments across the country are struggling with maintenance and upkeep
In the District, the District of Columbia Housing Authority (DCHA) estimates that there are more than $1.3 billion in deferred maintenance costs, including repairs to buildings.
These concerns are shared in other cities, as well. In New York City, the public housing authority estimates more than $16 billion in deferred maintenance costs.
Critics argue that this neglect of public housing has resulted in buildings being uninhabitable. They refer to this deterioration as demolition by neglect.
Plans to redevelop public housing developments have been controversial
In 1996, Congress authorized the HOPE VI program to redevelop severely distressed public housing developments. Through HOPE VI, private developers redeveloped public housing sites, usually creating a mix of affordable and market-rate units.
In the District, one of the public housing developments to go through HOPE VI was Arthur Capper Carrollsburg. The low-rise public housing development underwent a massive redevelopment, creating a new mixed-income neighborhood.
Critics contend that the project, which took nearly a decade to complete, resulted in widespread displacement of existing public housing residents.
Although the HOPE VI program has now ended, researchers are actively trying to understand the consequences of redeveloping public housing developments into mixed-income neighborhoods through the program.
In the District, the New Communities Initiative similarly aims to redevelop public housing developments. The program is slated to redevelop more than 1,000 public housing units in three large developments across the city — Barry Farm in Ward 8, Lincoln Heights in Ward 7 and Park Morton in Ward 1.
The program aims for one-to-one replacement of affordable housing units. This means that residents of public housing would have the opportunity to stay in their communities following the redevelopment.
However, the New Communities program has struggled amid concerns about the disruption of community ties and the displacement of existing residents during the redevelopment process.