City Bureau surveyed the nine candidates vying to lead the city about their affordable housing plans.
By Jerrel Floyd and India Daniels
Illustration: David Alvarado for City Bureau
Countless issues are on the table this mayoral election, but housing continues to be top of mind for Chicago residents.
"I think any mayoral candidate needs to be a housing advocate,” said Roderick Wilson, the executive director of the Lugenia Burns Hope Center.
City Bureau focused on affordable housing last year, reporting on city efforts to keep residents from being displaced from gentrifying neighborhoods and the push for housing cooperatives as a solution to rising housing costs. The issue re-emerged this year, when City Bureau’s Documenters interviewed Chicagoans about their awareness of and perspectives on the upcoming municipal elections. Not surprisingly, affordable housing was a common concern. Many said they wanted to see the city address homelessness, while others mentioned gentrification concerns, a need for rent control and frustration with the shortcomings of public housing.
Can housing cooperatives be a solution to the affordable housing crisis? Read the stories.
Some affordable housing advocates argue that now is the time to get candidates on the record with their promises and plans to confront issues like the city’s affordable housing deficit.
"We need to be talking about what are people bringing to the table,” said David Zoltan, a Chicago housing activist.
City Bureau surveyed mayoral candidates about their plans to address Chicago’s affordable housing deficit, their plans for keeping already existing homes affordable and their personal definitions of affordable housing. State Rep. Kam Buckner, Ja’Mal Green, Cook County Commissioner Brandon Johnson, Paul Vallas and Willie Wilson responded. Mayor Lori Lightfoot, U.S. Rep. Jesús “Chuy” García, Ald. Sophia King and Ald. Roderick Sawyer did not.
The questions came from interviews with residents and affordable housing advocates. For the candidates who did not respond to City Bureau’s survey, we have included comments they made at a mayoral forum hosted by ABC7.
ADDRESSING CHICAGO’S HOUSING DEFICIT
Chicago’s mayor is in a position to set policy priorities and determine where and how the limited taxpayer funds will be used. These decisions can have an impact beyond the years they are in office.
Since the 1990s, the city has used five-year plans to guide and evaluate its affordable housing efforts. The 2019-2023 plan, devised in 2018 under Mayor Rahm Emanuel, projected a $1.35 billion city investment with the goal of creating or preserving 40,000 units over the five years. Emanuel, who was criticized for not increasing affordable housing units fast enough, did not seek reelection and Lightfoot inherited the plan, called “One Chicago.”
The city is on track to spend more than it projected on One Chicago, but will likely come in far short of the homes promised. As of the third quarter of 2022, the city had committed $1.23 billion to create or preserve 17,355 units — less than half of its goal.
The shortage of affordable housing units is much larger. In 2021, Department of Housing Commissioner Marisa Novara said that Chicago is more than 100,000 units short of the affordable housing it needs.
The winner of this mayoral election will inherit the deficit, but will also have a hand in crafting the next five-year plan to tackle the issue.
WHERE ARE WE NOW?
Lightfoot took office in 2019 with a list of specific housing promises. While she has delivered on some, critics believe she has fallen short of the systemic investment needed to turn the tide on housing insecurity.
During her 2019 campaign, Lightfoot pledged to increase the city’s affordable housing stock by spurring innovation in line with recommendations from housing advocates and policy experts.
A year after Lightfoot took office, the COVID-19 pandemic hit, exacerbating housing insecurity. Through the American Rescue Plan Act, Chicago received $1.9 billion to kickstart an economic comeback, enabling Lightfoot to allocate more than $150 million toward affordable housing initiatives.
During her tenure, Lightfoot has sponsored legislation that incentivizes developers to build affordable units and equitable transit-oriented development. She has also supported efforts to beef up the city’s naturally occurring affordable housing stock by piloting programs to preserve SROs, ease the cost of repairs on homeowners and co-ops and make it easier to convert underutilized spaces like basements and attics into additional dwelling units.
In December 2021, Lightfoot announced a $1 billion investment that would support 24 developments across the city and would create or retain more than 2,000 affordable units. Funding comes from a blend of low-income housing tax credits, public loans, tax increment financing (TIF) funds and COVID recovery grants.
The mayor has trumpeted this as the largest investment in affordable housing in the city’s history, but the number of units promised are not enough given the size of the city’s affordable housing deficit.
Lightfoot has not moved the needle on other key plans from her 2019 proposal. Notably, she changed her tune on instituting a graduated real estate transfer tax (RETT) that would create a dedicated funding stream to address homelessness. In the face of a budget gap, Lightfoot said it would be irresponsible to lock in how that tax revenue is spent.
Last fall, housing organizers pushed for a version of this proposal, known as Bring Chicago Home, to be included on the February ballot as a referendum. The proposed tax would only affect the sale of property worth more than $1 million — less than 5% of all transactions — and would yield an estimated $163 million each year for homelessness prevention. But a City Council vote to put the referendum on the ballot never happened because Lightfoot and her allies blocked a hearing on the proposal, according to WTTW. At a press conference later that day, Lightfoot told reporters that she opposed the measure because it would be “spun as a property tax increase.”
Lightfoot did not respond to City Bureau questions about her previous and current campaign promises. Lightfoot told the Chicago Tribune her administration is "advancing a comprehensive set of solutions to combat homelessness and housing instability."
ABOUT THE QUESTIONS
We asked the candidates to define affordable housing because it is a somewhat squishy term. Government-backed housing programs have historically measured housing affordability in terms of income. The maximum rent for federally subsidized housing is 30 percent of income.
There are also caps to how much a person, or a family, can make to qualify for subsidized housing. To determine the cap, the Department of Housing and Urban Development uses the “area median income,” which is based on median family income estimates and fair market rent area definitions for each metropolitan area. The figures used in Chicago include data from Naperville, Joliet and suburban and rural areas in between, meaning the caps can skew much higher than what is realistically “affordable” for low-income Chicagoans.
The term “naturally occurring” describes housing that is affordable without a government subsidy. Because of zoning restrictions, gentrification and the loss of single-room occupancy (SRO) buildings, naturally occurring affordable housing is increasingly rare in Chicago and across the country.
KAM BUCKNER –
The city of Chicago says it has a more than 100,000 affordable housing deficit. If you were to be elected mayor, what would you do about that deficit and how will you go about doing it?
I plan to create affordable housing across Chicago by partnering with neighborhood builders to establish naturally occurring affordable housing units in each community and establishing a coalition of neighborhood builders to advise on affordable housing opportunities citywide. To ensure that builders and developers are incentivized to build, I will find ways to reduce construction costs to build more affordable housing, like reforming our antiquated plumbing code. I will also incentivize and encourage the development of new two-flat builds as a tool to boost economic development and provide families with alternative ways to grow financially.
To ensure we have the funds to build more affordable multi-family housing units throughout the city, I will expand the upper limit of the Real Estate Transfer Tax. I would spread that additional funding over a number of areas, including:
Single-family rehab in currently distressed neighborhoods - $20 million
Gap financing for new affordable multi-family housing - $20 to $40 million
Additional funding for rehab of affordable multi-family properties via the existing Troubled Buildings Initiative - $10 million
Expansion of the city’s network non-congregate homeless shelters - $10 million (Note: tens of millions of new federal and state dollars will shortly be available)
Additional funding for new permanent supportive housing - $20 million
New funding for a revival of the New Homes for Chicago program to put affordable dwelling units of vacant city land - $10 to $20 million. (Note: Developers would be sold these lots for $1.)
You can find my full housing plan [here].
What would be the timeline to implement your plan?
My priority is to create a safer Chicago and part of safety is making sure everyone is housed. That’s why on day one, I plan to start the work to reconfigure the Real Estate Transfer Tax (RETT) to make sure these dedicated funds are put towards addressing housing as it is at the state level.
In addition to addressing the deficit, what’s your plan for keeping existing affordable homes — both naturally occurring and subsidized — actually affordable?
I plan to sustain and grow Chicago’s affordable housing options and keep them affordable by establishing a role within City Hall focused solely on increasing and managing affordable housing stock. This cabinet-level position would coordinate across departments, work directly with builders and manage the creation and maintenance of affordable housing across the city.
I will conduct an evaluation of the Affordable Dwelling Unit (ADU) pilot and identify opportunities to improve and expand the pilot to ensure we can grow housing options for renters and that people with housing vouchers have access to these units. By investing in new housing innovation, such as adaptive reuse, and supporting innovative housing design through land grants, we will create more affordable housing, ensuring that that housing remains affordable.
How do you, personally, define affordable housing?
I believe that affordable housing is a human right and that every Chicagoan should have access to a safe and affordable home. Affordable to me means that paying your rent doesn’t force you into having to make tough decisions about whether to buy groceries or prescriptions. Affordable is having enough to pay for your housing and all your other needs – that means you’re not spending more than 30% of your gross annual income on your home.
JA'MAL GREEN –
The city of Chicago says it has a more than 100,000 affordable housing deficit. If you were to be elected mayor, what would you do about that deficit and how will you go about doing it?
The lack of affordable housing in Chicago is one of the primary problems I plan to tackle as mayor of Chicago. I believe that the solution to this issue must be multifaceted, and have laid out a comprehensive plan that addresses the housing crisis. As mayor, I would work to install resilience back into the lives of Chicagoans, creating at least 10,000 affordable housing units across the city. Under the Green administration, the city will drive the construction of more homes by providing tax incentives to developers of single-story commercial properties, including big box stores, supermarkets, banks and houses of worship to build a residential floor above their structure. We will also loosen zoning ordinances to allow similar construction above existing single-family homes, and convert vacant buildings into both temporary shelters and permanent housing units. The city will develop income-based housing, using a publicly owned Bank of Chicago to control the rent prices of these units. Additionally, the Green administration commits to creating 10,000 new home owners and developing 10,000 vacant lots, by using a $1 billion bonding capacity to back loans and make first-time home buying accessible to those who otherwise couldn’t afford a home. I believe that addressing the housing crisis is a crucial step to solving Chicago’s Public Safety issue. [Access the plan here.]
What would be the timeline to implement your plan?
I would begin the process of implementing solutions to Chicago’s housing crisis on day one of my administration, and work diligently to expedite the completion of this project as soon as possible.
In addition to addressing the deficit, what’s your plan for keeping existing affordable homes — both naturally occurring and subsidized — actually affordable?
I am dedicated to making sure affordable homes are affordable, through driving economic development and reducing the costs of homeownership. We’d reverse the property tax escalator, incentivize new development by implementing a 10-year tax break on city-owned land developed within a year, and cut property taxes by 2% for every year a homeowner lives in their primary home (up to 40% after 20 years). We would also provide two-year interest free loans to homeowners who are at risk of losing their home. More information [here]. I also commit to ensuring that new development is balanced against the risk of gentrification, keeping housing equitable and preventing people from being driven out of their homes.
How do you, personally, define affordable housing?
I believe every single Chicagoan should be able to access a safe, clean and secure place to live. Affordable housing means making sure that this access is available to everyone in Chicago. It is my responsibility as mayor to serve our city, and I will not rest until there is not a single Chicagoan who is cold, unsafe or unhoused.
BRANDON JOHNSON –
The city of Chicago says it has a more than 100,000 affordable housing deficit. If you were to be elected mayor, what would you do about that deficit and how will you go about doing it?
I would encourage the Chicago Housing Authority to cease any land grabs or private partnerships, and instead develop local community processes for land use to deliver on the promises to rebuild public housing in our city. This is how the city and its people and communities can address the housing and humanitarian crisis together.
My administration would also use community outreach to launch a citywide assessment of public buildings and empty schools to discuss repurpose possibilities. There are many facilities across the city that can serve as SROs and affordable housing units at cost to address the crisis of the 65,000+ unhoused in Chicago.
What would be the timeline to implement your plan?
The first 100 days of my administration.
In addition to addressing the deficit, what’s your plan for keeping existing affordable homes — both naturally occurring and subsidized — actually affordable?
The city of Chicago needs to develop comprehensive plans to support local affordable housing projects such as 18th and Peoria in Pilsen – the largest affordable housing plan in the city. We must ensure that the local average median income and local residents are considered, and encourage residents to apply for quality affordable housing units. With tax increment financing (TIF) reform, those funds can be an important source of revenue. We can also support and invest in innovative models like housing co-ops that create permanent affordable housing units, and encourage the creation of a public bank to ensure fair lending opportunities for Chicagoans.
Finally, we can protect naturally occurring affordable housing by capping property tax hikes and working with state officials to 1) create tax breaks for those who keep rents affordable, and 2) change state statute to assess taxes based on rental income.
How do you, personally, define affordable housing?
I define affordable housing as any housing that allows homeowners, tenants and occupants the opportunity to reside in safe accommodations without suffering undue financial stress or burden.
PAUL VALLAS–
The city of Chicago says it has a more than 100,000 affordable housing deficit. If you were to be elected mayor, what would you do about that deficit and how will you go about doing it?
There is a potential for the city to bolster its affordable housing portfolio by allowing property owners to convert unutilized space into garden apartment units that can be affordable to Chicagoans who are struggling financially after the pandemic. The mayor controls a collective of $28 billion in spending through the budget of the city and all of its sister agencies. I will utilize this budget to create economic opportunity and incentive to have property owners convert these spaces over. Creating the apartments is only one step, I will hold the line on property taxes so we can ensure that rents do not go up dramatically and that Chicagoans are not priced out of their homes.
What would be the timeline to implement your plan?
Affordable housing is one of my priorities. Right after I take office I will convene a committee of housing experts and community stakeholders to assess the housing crisis in Chicago and take steps to immediately house Chicagoans.
In addition to addressing the deficit, what’s your plan for keeping existing affordable homes — both naturally occurring and subsidized — actually affordable?
I will hold the line on property taxes so that Chicagoans are not priced out of their homes. I will also work to ensure that our city develops resources such as grant programs that will help homeowners pay for some of the upkeep of their homes.
How do you, personally, define affordable housing?
Affordable housing is the ability to live in one’s home without fear that they will not be able to afford their home one day. Affordable housing is something that allows families to thrive because they do not have to worry about immediately relocating and elderly can afford to “age in place.” Affordable housing is a civil right and no one should have to fear that they will be evicted in two months time because they could not afford the cost of inflation on their rent.
WILLIE WILSON –
The city of Chicago says it has a more than 100,000 affordable housing deficit. If you were to be elected mayor, what would you do about that deficit and how will you go about doing it?
Affordable housing is a basic right. I will be intentional in demanding the city enforce the current affordable housing units and expand with new housing projects. I will utilize vacant lots and large buildings to build additional affordable housing. Also, I will create a task force to make recommendations to ensure affordable housing.
What would be the timeline to implement your plan?
I will sign an executive order within the first 90 days to expand affordable housing.
In addition to addressing the deficit, what’s your plan for keeping existing affordable homes — both naturally occurring and subsidized — actually affordable?
I will ensure that as neighborhoods gentrify, I will lobby Springfield to pass legislation to keep existing affordable homes reasonable. I will also ensure that we hold the line on property taxes. I will rollback automatic property tax increases.
How do you, personally, define affordable housing?
My definition of affordable housing is housing that is reasonable for those with a household income at or below the median average as rated by the local government.
Candidates who did not respond
Garcia, Lightfoot, King and Sawyer did not respond to multiple requests to fill out City Bureau’s survey. However, during a recent ABC 7 mayoral debate, they were asked what they would do as mayor to improve affordable housing. We are including their answers below so voters can get a sense of where they stand on the issue.
JESÚS “CHUY” GARCÍA —
Housing is a human right and the pandemic just exacerbated the number of unhoused people in Chicago. It is at a crisis level. Things that I would do to increase the production of housing: I would use the infrastructure dollars that will be coming to Chicago and other cities as well. I would tap into tax increment financing dollars to also assist. I would use loans and subsidized loans as well as grants to help people. Especially people who need help improving their homes to be able to stay in homes that they've lived in for a long long time due to gentrification pressures. We also need to streamline the process to build more housing and not be a stumbling block for nonprofit developers especially on the West and South sides.
SOPHIA KING —
We already have tax incentives to help build housing in our neighborhood. They're called opportunity zones. This administration has really failed to use those. But we can build the South and the West side through incentives with opportunity zones. We also need to make sure that our elders and our most vulnerable are able to stay in their homes. We have tax incentives for rich people, it's called landmark districts. We can use those same incentives to make sure our elders are able to stay in their home. I would redirect those resources.
LORI LIGHTFOOT —
I can tell you what we've specifically done: a $1 billion commitment to affordable housing, the largest commitment in the history of the city. We have brought already, in my term, almost 16,000 new units of affordable housing online. We have worked to address the issues of displacement from development. For example, in Woodlawn, where we put together a fund for $10 million to help long-term homeowners; and we have stabilized the rents there so long-term renters in that same neighborhood can stay — the same thing that we've done in Humboldt Park. And we've learned the lessons from the past administration that let market rates and forces drive people out of neighborhoods. We are working on these issues. We're pushing moneys out from the emergency rental assistance and a number of other things. We've done concrete tangible things that will help on affordable housing.
RODERICK SAWYER —
One of the biggest problems that we have right now regarding affordable housing is the density bonuses that we pay out to developers for downtown. And it's not the problem with the money that's going to a good cause. But they are being forced to build properties that are adjacent to them. So they're trying to build affordable housing in the Fulton Market area. Which doesn't make sense when I have an abundance of land in Englewood. And I'm sure my colleagues in East Garfield Park and Lawndale — we have lots where you can build affordably, really affordably, and use that same density bonus money to invest in our neighborhoods that are really seeing no investment whatsoever. They're abandoned, they're vacant and we need to do better with spreading that money around to areas that really need it so that we can help individuals as it relates to affordable housing.