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DALLAS, TEXAS
Affordable Housing and Mixed-Income Strategies
A ULI Advisory Services Panel
FEBRUARY 28 - MARCH 4, 2016
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• The mission of the Urban Land Institute is to provide
leadership in the responsible use of land and in
creating and sustaining thriving communities
worldwide.
• ULI is a membership organization with nearly 40,000
members, worldwide representing the spectrum of
real estate development, land use planning and
financial disciplines, working in private enterprise and
public service.
• What We Do:
– Conduct Research
– Provide a forum for sharing of best practices
– Write, edit and publish books and magazines
– Organize and conduct meetings
– Direct outreach programs
– Conduct Advisory Services Panels
About the Urban Land Institute
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• Since 1947
• 15 - 20 panels a year on a variety of land
use subjects
• Provides independent, objective candid
advice on important land use and real
estate issues
• Process
• Review background materials
• Receive a sponsor presentation &
tour
• Conduct stakeholder interviews
• Consider data, frame issues and
write recommendations
• Make presentation
• Produce a final report
The Advisory Services Program
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The Panel
Chair
Tony M. Salazar
President - West Coast Division
McCormack Baron Salazar
Los Angeles, California
Panelists
Kent Collins
Principal, Centro Development, LLC
Austin, Texas
Nancy Montoya
Principal, TTA
New Orleans, Louisiana
Dionne Nelson
Principal and Chief Executive Officer
Laurel Street Residential
Charlotte, North Carolina
Philip Payne
Principal and CEO, Ginkgo Residential
Charlotte, North Carolina
Meaghan Shannon-Vlkovic
Vice President and Market Leader, Enterprise
Community Partners
Atlanta, Georgia
Mark Shelburne
Senior Manager, Novogradac & Company LLC
Raleigh, North Carolina
Jake Wegmann
Assistant Professor, Community and Regional
Planning Program, University of Texas at Austin
Austin, Texas
Roger L. Williams
Principal, RW & Associates, LLC
Potomac, Maryland
Stockton Williams
Executive Director, Terwilliger Center for Housing
ULI-the Urban Land Institute
Washington, DC
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Sponsor
City of Dallas
Mayor and City Council
Karl Zavitkovsky
Bernadette Mitchell
Heather Lepeska
Timothy Glass
Thanks to the more 70 individuals for participating in the
ULI Panel interview process.
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The Assignment
The City asked the Urban Land Institute to assemble a panel of housing,
land use and economic development experts to:
• Interview stakeholder groups identified by the City and ULI;
• Review the City’s existing housing policies and practices;
• Review best practices of other municipalities related to the
development of affordable and mixed-income housing; and
• Present to the Housing Committee suggested policies and practices
for inclusion in the City’s new housing policy.
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Summary of Major Recommendations
• Muster the political will to address the affordable housing crisis
• Create a Chief Executive Officer of Housing and Community Investment
• Create a Housing Trust Fund with dedicated revenue sources
• Identify a limited number of housing and community revitalization focus areas
• Expand housing choices in high opportunity areas
• Create a predictable, transparent and efficient housing policy –Citywide
• Enough Planning – Time to Act
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Growing Diversity …
Source:
Neighbor-
hoodPlus
Plan, p. 8
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Growing Diversity … But Growing
Inequality of Opportunity
Source:
Neighbor-
hoodPlus
Plan, p. 8
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Source:
NeighborhoodPlus
Plan, p. 13
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Source: NeighborhoodPlus Plan, p. 14
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Dallas
City Hall
Source: NeighborhoodPlus Plan, p. 14
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Different Neighborhoods, Different Housing
Conditions
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Different Neighborhoods, Different Housing
Conditions
• Booming multifamily construction
• High-opportunity stability
• Aging multifamily concentrations
• Gentrification
• Emergence
• Working-class vibrancy
• High vacancy
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Different Neighborhoods, Different Housing
Conditions
• Booming multifamily construction
• High-opportunity stability
• Aging multifamily concentrations
• Gentrification
• Emergence
• Working-class vibrancy
• High vacancy
Source: Jake Wegmann
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Different Neighborhoods, Different Housing
Conditions
• Booming multifamily construction
• High-opportunity stability
• Aging multifamily concentrations
• Gentrification
• Emergence
• Working-class vibrancy
• High vacancy
Source: Google Maps Streetview
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Different Neighborhoods, Different Housing
Conditions
• Booming multifamily construction
• High-opportunity stability
• Aging multifamily concentrations
• Gentrification
• Emergence
• Working-class vibrancy
• High vacancy
Source: Google Maps Streetview
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Project-By-Project Development Approvals
Source: www.dallascityhall.com
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Source: www.dallascityhall.com
Project-By-Project Development Approvals
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Source: www.dallascityhall.com
Project-By-Project Development Approvals
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Source: www.dallascityhall.com
Project-By-Project Development Approvals
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Source: www.dallascityhall.com
Project-By-Project Development Approvals
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Source: www.dallascityhall.com
Project-By-Project Development Approvals
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Source: www.dallascityhall.com
Project-By-Project Development Approvals
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Source: www.dallascityhall.com
Project-By-Project Development Approvals
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Source: www.dallascityhall.com
Project-By-Project Development Approvals
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Source: www.dallascityhall.com
Project-By-Project Development Approvals
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Why Does This Matter?
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Individual councilmembers have few political
incentives to negotiate for affordable housing within
their districts..
Why Does This Matter?
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Individual councilmembers have few political
incentives to negotiate for affordable housing within
their districts..
Why Does This Matter?
Without a transparent, consistent entitlements
approval process, Dallas is missing out on
opportunities to trade upzoning for affordable
housing.
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Why Does This Happen?
• Opaque, inconsistent process for project review,
approval, and accountability
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Why Does This Happen?
• Opaque, inconsistent process for project review,
approval, and accountability
• Council-manager structure of city government
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Why Does This Happen?
• Opaque, inconsistent process for project review,
approval, and accountability
• Council-manager structure of city government
• Two-year election cycles
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Why Does This Happen?
• Opaque, inconsistent process for project review,
approval, and accountability
• Council-manager structure of city government
• Two-year election cycles
• Aldermanic privilege
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The Tools, Funding Mechanisms and Partners
• List of resources available to developers
– Mixed-income & single family
– Inform & incentivize developers
• Affordable multifamily & single family preservation program
– “Naturally occurring” affordable housing
– LIHTC and other subsidized properties
• Aging in place housing approaches
– New construction and repair programs
• Creating a flexible source of funding (i.e., Housing Trust Fund)
• City and institutionally owned land = development opportunity
• Inclusionary zoning or payment in lieu program for mixed-income strategies in distressed and higher income areas.
• Community engagement process is critical for success
Maximizing and leveraging tools will be critical to successful implementation
of housing strategies. The panel heard…
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Tools, Funding Mechanisms and Partners
• Multifamily mortgage finance
– HUD, Fannie Mae and Freddie Mac
• Low Income Housing Tax Credits (LIHTC)
– 9% and 4% LIHTC
– Qualified Allocation Plan (QAP)
• HOME Federal Funding
– Gap financing, rental and mortgage assistance
• Community Development Block Grant (CDBG)
– Youth & senior programs, housing assistance, repairs, mortgage assistance, homeownership, infrastructure improvements
• HUD 108 Loan Guarantee Program
– Economic development, housing rehab, public facilities and other physical development for revitalization
Current toolbox includes…
Lancaster Urban Village, Dallas
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Tools, Funding Mechanisms and Partners
• New Market Tax Credits
– Administered by Dallas Development Fund (under Economic Development)
– Spurs economic development in underserved neighborhoods
• Public Private Opportunity Fund
– General Obligation Bonds (GO Bonds)
– Supports economic development that creates jobs and private investment
– Mixed use & residential must be reviewed on a case-by-case basis and
require 20% affordability
Current toolbox includes…
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Tools, Funding Mechanisms and Partners
• Tax Increment Financing (TIF)
– Special purpose districts (18 of them citywide)
– Supports improvements and subsidizes eligible projects within the district
– Subsidy for residential requires a set aside of 20% of the units at 80% of AMI
($56,300 for a family of 4)
• Land Bank Authority
– Vehicle to acquire unproductive, vacant and developable lots
– Properties acquired through tax lien foreclosure
– Sold to nonprofits and for-profits for deed restricted resale to families earning
<= 115% AMI
Current toolbox includes…
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Tools, Funding Mechanisms and Partners
Partners
– Dallas Housing Authority (DHA)
– Dallas Independent School District (DISD)
– Dallas Habitat for Humanity
– The Real Estate Council (TREC)
– Community Housing Development Organizations (CHDOs)
– Inclusive Communities Project
– Dallas Area Rapid Transit (DART)
– Community and Service Organizations
– For-profit developers
Building collaboration and capacity through partnerships will be critical for
collective impact
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Enough Planning …
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Enough Planning … Time To Act!!
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Enough Planning … Time To Act!!
Plan Responsibility
Consolidated Plan City Manager
NeighborhoodPlus City Manager
GrowSouth Mayor
Dallas Housing Authority Five-Year Plan Dallas Housing Authority (DHA)
buildingcommunityWORKSHOP plan City Manager
Middle-Income Housing Proposal The Real Estate Council (TREC)
Housing For All
North Texas Community Development
Association
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PRINCIPLES
• “GO BIG”
– Vision
– Leadership
– Political Will
– Innovation
– Goals and Metrics
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PRINCIPLES
• “GO COMPREHENSIVE”
– Housing only part of solution
– Work in both economically distressed and high opportunity
areas
– Public / Private Partnerships
– Land banking
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PRINCIPLES
• “GO LONG-TERM”
– Commitment beyond terms and cycles
– Consistent and transparent policies and procedures
– Accountability
– Data-driven analysis reporting
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PRINCIPLES
• “GO REGIONAL”
– Include the City of Dallas and adjacent regions in affordable
housing and economic opportunity initiatives
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PRINCIPLES
• “GO SUSTAINABLE”
– Financial and Economic
– Environmental
• Sustainable
• Resilient
• Healthy
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RECOMMENDATIONS
• Establish an independent Housing and Community Investment
Task Force
• Appoint a CEO to lead the Task Force
• Establish a Housing Trust Fund financed by dedicated revenue
sources
– GO Bonds / Payments in lieu / Fees / Other?
• Explore inclusionary housing requirements with payments in lieu
• Pursue a public and institutional land use strategy
• Expand housing choice voucher opportunities
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RECOMMENDATIONS
• For TIF and other City funded projects:
– Create a sliding scale to allow affordable units at below 80%
AMI
– Require affordable units or a payment in lieu
– Require voucher acceptance
• Use Upzoning to create more affordable units
– MF-1(A), MF-2(A), MV-1, MV-2 – Increase density and height
limitations
– 51A – Greater utilization of form based zoning
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Implementation: Taskforce Concept
• Independent – Led by a highly-respected civic leader as Chief Executive Officer of
Housing and Community Investment
– No or minimal salary
– Reports to City Council and Mayor
• Team includes a day-to-day manager and team of consultants from Dallas’ best
business and nonprofit organizations
• Supported by City staff and a community stakeholder group
• Urgent change agent with a data-driven approach
– Goal-oriented and efficient
– Work likely accomplished in approximately 18 months
• Serve as a model for trust between key constituents
– Brings together the various plans and recommendations for housing
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Implementation: Taskforce Roles and Responsibilities
• Set clear and transparent goals and objectives with City Council approval
• Create a stakeholder group including:
– Community leaders
– Real estate and business community
– Healthcare and education providers
• Assess and recommend changes to the housing and community investment policies, procedures and structures
– Based upon data-driven criteria and
– Including benchmarks and measurements
• Implement changes as approved by City Council
• Review and approve of all housing and community development decisions prior to presentation to City Council for approval
• Success measured by a scorecard of objectives and reported quarterly
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Implementation: Taskforce Organization
Mayor and City Council
City Manager
City Departments/Staff
Taskforce CEO
Taskforce Manager
Consultant Team
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Implementation: Improvement in Priority Areas
• Identify priority neighborhoods for focused improvement
– Select based upon the existence or ability to develop major systems
– At least three systems should be required
• Major employers
• Existing housing redevelopment
• Quality school opportunities
• Healthcare providers
• Transit options
• Major commercial/retail anchors
• One priority neighborhood in core Southern Dallas recommended, such as Lancaster corridor,
Frazier, UNT@Dallas, SW center mall, Cedars or Wynnewood Village.
• One priority neighborhood that builds upon the current momentum near the downtown core,
such as West Dallas, Fair Park or Bishop Arts
• Plan and select catalytic projects in these areas that provide the opportunity for true
revitalization
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Implementation: Affordable Units in High Opportunity Areas
• Assess current land holdings and independently acquire land for mixed-income
development in high opportunity areas
• Work with other institutions/agencies to create joint development plans (e.g. DART, DISD,
Dallas County Hospital)
– Obtain a memorandum of understanding between key partners for better coordination
of development activities
– Success will be limited if mixed-income developments don’t effectively leverage
transportation, education and healthcare
• Increase the placement of Housing Choice Voucher holders by leasing to a partner entity
that then subleases to voucher holders
• Partner could serve as a guarantor and streamline the rental process
• Program can be modeled after corporate rental program
• Engage a third party listing service for a more transparent and comprehensive tracking of
available affordable units (e.g. SocialServe.com)
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Implementation: Housing Trust Fund
• Management Options:
– City/Dallas Housing Finance Corporation DHFC
– Community Development Financial Institution (CDFI)
– Nonprofit
• Potential Funding Sources:
– General Obligation Bonds
• Sell approval for housing in the next bond issue
• Communicate the importance through a coordinated marketing campaign
– Seattle: Levy campaign
– Charlotte: Chamber led campaign
– Perform an outside analysis of viability of linkage fees and payment in lieu of providing affordable units
– Re-directing TIF funds from projects that opt out
– Allocate a portion of CDBG or other existing City HUD allocations
– Foundation and Corporate grants
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Implementation: Housing Policy Changes – “Quick Wins”
• Explore continued opportunity to develop Low Income Housing Tax Credit (LIHTC) projects
– Make written comments to Qualified Allocation Plan
– Move forward existing applications for preservation projects
– Work with other cities and developers with similar concerns
• Establish a compliance monitoring team to track affordable units in existing and future projects
• Establish appropriate affordability periods for units in city-funded projects
• Identify and redeploy funds from stalled projects
• Increase code inspections and review of housing stock
• Develop a GIS-based system of prioritizing, documenting, monitoring and correcting code
violations
• Evaluate the possible use of homestead preservation districts
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Best Practice: Leadership and Political Will
Housing NOLA Plan: launched 2015
Managed by Greater New Orleans Housing Alliance, in partnership with the City,
Foundation for Louisiana, local business and community leaders.
5-year goal to create 5,000 affordable units by 2021 – focused on 80% AMI and
below ($48,000). New development in opportunity areas.
City has approved $16 million in current budget, approved a density bonus,
seeking state legislation to provide additional dedicated revenue.
“Affordable housing is one of the top priorities of my administration, and we are
pleased that many of the City’s initiatives are reflected in Housing NOLA.”
–Mayor Mitch Landrieu
Takeaway for Dallas: Set bold goals, commit real money, exercise political will.
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Best Practice: Dedicated Revenue Source
Charlotte Housing Trust Fund: established 2001
Gap financing to support development serving households earning 60% AMI and
below ($38,500).
Capitalized by a portion of proceeds from City GO bonds, backed by property taxes.
Has committed $93 million, leveraged $544 million in total development, produced
5,542 units.
Most recent bond issue (2014) passed with 60 percent of the vote – two-year
campaign led by Chamber of Real Estate and Building Industry Coalition, Greater
Charlotte Apartment Association, American Airlines, and others.
Takeaway for Dallas: Include housing in the GO bond, build a coalition to make the
case to voters.
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Best Practice: Inclusionary Housing with Incentives
Palm Beach County Workforce Housing Program, established 2004
Requires new developments to provide units serving household earning 60 – 120
percent AMI in exchange for additional density allowances on a sliding scale.
Developers have flexibility to meet requirements by paying an in lieu fee, building unit
offsite, or purchasing and deed-restricting market -rate units.
To date more than 1,400 affordable/workforce units approved as part of 36 developments
+ nearly $900,000 of in-lieu fees collected from 3 developments.
“Palm Beach County has worked tirelessly to bring all of our housing partners to the table
in an effort to increase the availability of workforce housing in all areas of the county.”
–Palm Beach County Administrator Verdenia Baker
Takeaway for Dallas: Generate inclusionary development with incentives, engage the
private sector.
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Best Practice: Strategic Use of Public Land for Mixed-Income
Montgomery County (MD), since late 1980s
Maintains a comprehensive county land inventory and has facilitated mixed-income
housing on multiple county land holdings.
All capital improvement projects or agency plans to redevelop or dispose of county-
owned land are required to assess the potential for affordable housing.
County Council has passed legislation that expresses a preference for at least 30
percent affordable housing on public land.
Current sites considered for future mixed-income: new police station, former police
station, a former public fire safety- training site, and a future fire station.
Takeaway for Dallas: Seize the opportunity in land ownership to support mixed-income
development.
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Best Practice: Regional Housing Opportunity
Chicago Regional Housing Initiative, 2011 - 2014
9 regional housing authorities manage a consolidated pool of rental assistance
available through a single application for developments in opportunity and revitalization
communities across the region.
The Metropolitan Planning Council, a regional planning organization, coordinates
application process and helps broker developments.
Initiative has provided assistance to 467 apartments in 30 developments across the
region made up of nearly 2,000 mixed-income multifamily developments
“Knowing that we need low- and high-skilled labor to be able to converge around jobs,
we need people of different incomes to be able to live around the region.”
–Marisa Novara, Metropolitan Planning Council
Takeaway for Dallas: Regional collaboration to expand housing opportunity can work.
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Best Practice: Comprehensive Community Redevelopment
The Villages of East Lake (Atlanta), since 2001
Mixed-income community of 1,500 market rate and affordable units.
Prior to a comprehensive redevelopment:
o 96% poverty rate,
o 90% of residents had experienced violent crime
o 5% of 5th graders met state math standards
o No new real estate investment in decades
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Best Practice: Comprehensive Community Redevelopment
The Villages of East Lake (Atlanta), since 2001
Mixed-income community of 1,500 market rate and affordable units.
As a result of redevelopment
o Area has attracted more than $175 million in new investment
o 70 % public housing residents employed or in school or job training
o Crime down 73% – violent crime down 90%
o 98% students met or exceeded state standard
Takeaway for Dallas:
Comprehensive community
development can work.
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Best Practice: Sustainable Development
Austin S.M.A.R.T Housing Program, since 2000
Encourages accessible, mixed-income development by providing development fee
waivers and an expedited review process for developers who set aside 10% of housing
units as affordable.
The program has produced 15,351 units affordable to households earning 80% of MFI or
less.
TOD requirements: a bus route located within ¼ mile of the development for multifamily/
½ mile for single family.
The Green Building program rates single family homes, multi-family residences, and
commercial structures regarding siting, energy, water, materials, indoor air quality, and
education and innovation.
Takeaway for Dallas: Sustainable mixed-income development can work.
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Summary of Major Recommendations
• Muster the political will to address the affordable housing crisis
• Create a Chief Executive Officer of Housing and Community Investment
• Create a Housing Trust Fund with dedicated revenue sources
• Identify a limited number of housing and community revitalization focus areas
• Expand housing choices in high opportunity areas
• Create a predictable, transparent and efficient housing policy –Citywide
• Enough Planning – Time to Act
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Questions