As affordable housing disappears, states scramble to shore up the losses

LOS ANGELES (AP) — For more than two decades, the low rent on Marina Maalouf’s apartment in a blocky affordable housing development in Los Angeles’ Chinatown was a saving grace for her family, including a granddaughter who has autism.

But that grace had an expiration date. For Maalouf and her family it arrived in 2020.

The landlord, no longer legally obligated to keep the building affordable, hiked rent from $1,100 to $2,660 in 2021 — out of reach for Maalouf and her family. Maalouf's nights are haunted by fears her yearslong eviction battle will end in sleeping bags on a friend's floor or worse.

While Americans continue to struggle under unrelentingly high rents, as many as 223,000 affordable housing units like Maalouf's across the U.S. could be yanked out from under them in the next five years alone.

It leaves low-income tenants caught facing protracted eviction battles, scrambling to pay a two-fold rent increase or more, or shunted back into a housing market where costs can easily eat half a paycheck.

Those affordable housing units were built with the Low-Income Housing Tax Credit, or LIHTC, a federal program established in 1986 that provides tax credits to developers in exchange for keeping rents low. It has pumped out 3.6 million units since then and boasts over half of all federally supported low-income housing nationwide.

“It’s the lifeblood of affordable housing development,” said Brian Rossbert, who runs Housing Colorado, an organization advocating for affordable homes.

That lifeblood isn’t strictly red or blue. By combining social benefits with tax breaks and private ownership, LIHTC has enjoyed bipartisan support. Its expansion is now central to Democratic presidential candidate Kamala Harris’ housing plan to build 3 million new homes.

The catch? The buildings typically only need to be kept affordable for a minimum of 30 years. For the wave of LIHTC construction in the 1990s, those deadlines are arriving now, threatening to hemorrhage affordable housing supply when Americans need it most.

“If we are losing the homes that are currently affordable and available to households, then we’re losing ground on the crisis,” said Sarah Saadian, vice president of public policy at the National Low Income Housing Coalition.

“It’s sort of like having a boat with a hole at the bottom,” she said.

Not all units that expire out of LIHTC become market rate. Some are kept affordable by other government subsidies, by merciful landlords or by states, including California, Colorado and New York, that have worked to keep them low-cost by relying on several levers.

Local governments and nonprofits can purchase expiring apartments, new tax credits can be applied that extend the affordability, or, as in Maalouf’s case, tenants can organize to try to force action from landlords and city officials.

Those options face challenges. While new tax credits can reup a lapsing LIHTC property, they are limited, doled out to states by the Internal Revenue Service based on population. It's also a tall order for local governments and nonprofits to shell out enough money to purchase and keep expiring developments affordable. And there is little aggregated data on exactly when LIHTC units will lose their affordability, making it difficult for policymakers and activists to fully prepare.

There also is less of a political incentive to preserve the units.

“Politically, you’re rewarded for an announcement, a groundbreaking, a ribbon-cutting,” said Vicki Been, a New York University professor who previously was New York City’s deputy mayor for housing and economic development.

“You’re not rewarded for being a good manager of your assets and keeping track of everything and making sure that you’re not losing a single affordable housing unit,” she said.

Maalouf stood in her apartment courtyard on a recent warm day, chit-chatting and waving to neighbors, a bracelet with a photo of Che Guevarra dangling from her arm.

“Friendly,” is how Maalouf described her previous self, but not assertive. That is until the rent hikes pushed her in front of the Los Angeles City Council for the first time, sweat beading as she fought for her home.

Now an organizer with the LA Tenants' Union, Maalouf isn’t afraid to speak up, but the angst over her home still keeps her up at night. Mornings she repeats a mantra: “We still here. We still here." But fighting day after day to make it true is exhausting.

Maalouf's apartment was built before California made LIHTC contracts last 55 years instead of 30 in 1996. About 5,700 LIHTC units built around the time of Maalouf's are expiring in the next decade. In Texas, it’s 21,000 units.

When California Treasurer Fiona Ma assumed office in 2019, she steered the program toward developers committed to affordable housing and not what she called “churn and burn," buying up LIHTC properties and flipping them onto the market as soon as possible.

In California, landlords must notify state and local governments and tenants before their building expires. Housing organizations, nonprofits, and state or local governments then have first shot at buying the property to keep it affordable. Expiring developments also are prioritized for new tax credits, and the state essentially requires that all LIHTC applicants have experience owning and managing affordable housing.

“It kind of weeded out people who weren’t interested in affordable housing long term,” said Marina Wiant, executive director of California’s tax credit allocation committee.

But unlike California, some states haven't extended LIHTC agreements beyond 30 years, let alone taken other measures to keep expiring housing affordable.

Colorado, which has some 80,000 LIHTC units, passed a law this year giving local governments the right of first refusal in hopes of preserving 4,400 units set to lose affordability protections in the next six years. The law also requires landlords to give local and state governments a two-year heads-up before expiration.

Still, local governments or nonprofits scraping together the funds to buy sizeable apartment buildings is far from a guarantee.

Stories like Maalouf's will keep playing out as LIHTC units turn over, threatening to send families with meager means back into the housing market. The median income of Americans living in these units was just $18,600 in 2021, according to the Department of Housing and Urban Development.

"This is like a math problem,” said Rossbert of Housing Colorado. “As soon as one of these units expires and converts to market rate and a household is displaced, they become a part of the need that’s driving the need for new construction.”

“It’s hard to get out of that cycle,” he said.

Colorado's housing agency works with groups across the state on preservation and has a fund to help. Still, it's unclear how many LIHTC units can be saved, in Colorado or across the country.

It's even hard to know how many units nationwide are expiring. An accurate accounting would require sorting through the constellation of municipal, state and federal subsidies, each with their own affordability requirements and end dates.

That can throw a wrench into policymakers' and advocates' ability to fully understand where and when many units will lose affordability, and then funnel resources to the right places, said Kelly McElwain, who manages and oversees the National Housing Preservation Database. It's the most comprehensive aggregation of LIHTC data nationally, but with all the gaps, it remains a rough estimate.

There also are fears that if states publicize their expiring LIHTC units, for-profit buyers without an interest in keeping them affordable would pounce.

“It's sort of this Catch-22 of trying to both understand the problem and not put out a big for-sale sign in front of a property right before its expiration,” Rossbert said.

Meanwhile, Maalouf's tenant activism has helped move the needle in Los Angeles. The city has offered the landlord $15 million to keep her building affordable through 2034, but that deal wouldn't get rid of over 30 eviction cases still proceeding, including Maalouf's, or the $25,000 in back rent she owes.

In her courtyard, Maalouf's granddaughter, Rubie Caceres, shuffled up with a glass of water. She is 5 years old, but with special needs, her speech is more disconnected words than sentences.

"That’s why I’ve been hoping everything becomes normal again, and she can be safe,” said Maalouf, her voice shaking with emotion. She has urged her son to start saving money for the worst.

“We'll keep fighting,” she said, “but day by day it's hard.”

"I’m tired already.”

Bedayn reported from Denver.

Bedayn is a corps member of The Associated Press/Report for America Statehouse News Initiative. Report for America is a nonprofit national service program that places journalists in local newsrooms to report on undercovered issues.

A general view of Hillside Villa, where Marina Maalouf is a longtime tenant, is seen in Los Angeles, Wednesday, Sept. 18, 2024. (AP Photo/Jae C. Hong)

Marina Maalouf, a longtime resident of Hillside Villa who participated in protests after rents doubled in 2019, stands for a photo outside her apartment building in Los Angeles on Wednesday, Sept. 18, 2024. (AP Photo/Jae C. Hong)

Rubie Caceres, a granddaughter of Marina Maalouf, a longtime resident of Hillside Villa, grabs a slice of pizza in her apartment in Los Angeles, Tuesday, Oct. 1, 2024. (AP Photo/Jae C. Hong)

Marina Maalouf, a longtime resident of Hillside Villa who participated in protests after rents doubled in 2019, scrolls through a digital album in her apartment in Los Angeles, Tuesday, Oct. 1, 2024. (AP Photo/Jae C. Hong)

A wall in Marina Maalouf's apartment is adorned with family photos as an El Salvadoran flag is draped over an American flag in Los Angeles, Tuesday, Oct. 1, 2024. (AP Photo/Jae C. Hong)

Rubie Caceres, a granddaughter of Marina Maalouf, a longtime resident of Hillside Villa who participated in protests after rents doubled in 2019, enters a bedroom in her apartment in Los Angeles, Tuesday, Oct. 1, 2024. (AP Photo/Jae C. Hong)

Rubie Caceres, a granddaughter of Marina Maalouf, a longtime resident of Hillside Villa, plays with a toy camera in her apartment in Los Angeles, Tuesday, Oct. 1, 2024. (AP Photo/Jae C. Hong)

Marina Maalouf, a longtime resident of Hillside Villa, watches as her granddaughter feeds fish in their apartment in Los Angeles, Tuesday, Oct. 1, 2024. (AP Photo/Jae C. Hong)

Marina Maalouf, a longtime resident of Hillside Villa who participated in protests after rents doubled in 2019, stands for a photo inside her apartment building in Los Angeles on Wednesday, Sept. 18, 2024. (AP Photo/Jae C. Hong)

A poster symbolizing solidarity within the tenant community hangs on the wall of Marina Maalouf's apartment in Los Angeles, Tuesday, Oct. 1, 2024. Maalouf, a longtime Hillside Villa apartment complex resident, participated in protests after rents doubled in 2019. (AP Photo/Jae C. Hong)

Marina Maalouf, a longtime resident of Hillside Villa who participated in protests after rents doubled in 2019, peels potatoes in her apartment in Los Angeles, Tuesday, Oct. 1, 2024. (AP Photo/Jae C. Hong)

Marina Maalouf, a longtime resident of Hillside Villa, sits on a sofa as her granddaughter eats pizza for lunch in their apartment in Los Angeles, Tuesday, Oct. 1, 2024. (AP Photo/Jae C. Hong)

Marina Maalouf, a longtime resident of Hillside Villa, sits for a photo in her apartment in Los Angeles, Tuesday, Oct. 1, 2024. (AP Photo/Jae C. Hong)

An aerial view shows Hillside Villa, bottom center, an apartment complex where Marina Maalouf is a longtime tenant, in Los Angeles, Tuesday, Oct. 1, 2024. (AP Photo/Jae C. Hong)

Women make up roughly half of U.S. labor union membership, but representation in top level union leadership positions has lagged, even in female-dominated industries and particularly for women of color.

But Black and Latina women are starting to gain ground, landing top positions at some of the biggest unions in the U.S. That has translated into wins at the bargaining table that focus more attention on family-friendly benefits like parental leave and health care coverage, as well as protections against sexual harassment.

Often when people think about unions, "they think of a white guy in a hard hat. But in fact, studies show that about two-thirds of working people who are covered by a union contract are women and/or people of color,” said Georgetown University labor historian Lane Windham.

Indeed, hospitality union UNITE HERE's membership is majority women and people of color. And last month, more than 12,000 of them across six states went on strike to push for wage increases, fair workloads and more affordable health care under the leadership of Gwen Mills, who in June became the first woman to be elected union president in its 130-year history.

Data from the U.S. Department of Labor shows that Black and Latina women experience a particularly wide gender pay gap. They also face intersectional headwinds of both racism and sexism in their careers, making them even more attuned to inequities in the workplace and motivating them to increasingly step up the fight as union leaders.

Black and Latina women are driving labor union growth in the U.S. amid a decades-long decline in membership. In 2023, Black women's union membership rate notched a slight bump from 10.3% to 10.5%, while Latinas went up from 8.5% to 8.8%. But that's still more than white men and women as well as Asian women, whose membership experienced a decrease during the same time period.

Momentum for Black and Latina women rising into labor union leadership has picked up in the last five years. But the work began long before that by "our foremothers who laid this foundation and have been pushing and kicking those doors open for decades,” according to Liz Shuler, who in June 2022 became the first woman in history to lead the AFL-CIO, a federation of 60 national and international labor unions.

“The #MeToo movement, I think, has really emboldened women across the board, including in labor, to say, you know what? I’m not going to be sitting on the sidelines,” Shuler said. The pandemic also put a spotlight on essential workers such as nurses, service workers and care workers, who are predominantly women and minorities.

Today’s examples of diverse union leaders include Becky Pringle, a Black woman who leads the National Education Association, the nation's largest union; Bonnie Castillo, the first Latina to serve as executive director of National Nurses United; and April Verrett, who in May became the first Black woman to lead the Service Employees International Union, which says about 60% of its service worker members are people of color, and two-thirds are women.

“If we want to build power on those who are perceived to have the least amount of power, then we've got to create space for our people of those identities to be able to lead,” Verrett told The Associated Press.

But while female-dominated fields have made strides in union leadership diversity, “there is still a long way to go” for unions in male-dominated fields like building and manufacturing trades, said University of Illinois Urbana-Champaign labor historian Emily Twarog. Despite some gender diversity headway through DEI and apprenticeship programs, “there hasn’t been that kind of culture shift.”

Men continue to have a higher union membership rate than women — 10.5% versus 9.5% respectively, according to the U.S. Bureau of Labor Statistics. And workplace sexual harassment and biases still run rampant in many places, including for Chicago-based Lisa Lujano, a journey-level carpenter and member of Carpenters Union Local 13.

Things might get better, she said, if more Black and Latina women held union leadership roles and were more aware of their memberships' needs, including safety gear that fits women’s bodies, for example. Or parental leave, which Lujano does not have.

“I think we would get more respect out in the field,” she said.

Here's a look at the impact women union leaders have had at the bargaining table:

Teachers’ unions have in recent years begun to use their collective power to push for wraparound benefits to help their surrounding community in a method known as "bargaining for the common good," which aims to go beyond wages and benefits at the bargaining table and tackle wider social issues. The Chicago Teachers Union, for example, included demands for affordable housing citywide during a strike in 2019 — in part organized by then-vice president Stacy Davis Gates, who is now CTU president.

Some teachers' unions are also fighting for racial justice, including the United Teachers Los Angeles, which demanded that the school district stop subjugating students to random metal detector screenings and locker checks without cause, decrying the practice as disproportionately targeting Black and minority students.

“We need to address the inequities that are built into every single social system in this country that determine whether our students come to school ready to learn every day,” Pringle said. “It was our female leaders, particularly our leaders of color, who really leaned into that.”

Unionized hotel workers like Maria Mata have made strides toward fighting the rampant sexual harassment in their profession.

Mata, a Hispanic housekeeper and UNITE HERE union leader at the W San Francisco, helped lead a successful push at her hotel for workers to be equipped with panic buttons in 2018 to summon security help in an emergency, now implemented by several major hotel chains.

“We needed more protection,” especially during night shifts spent cleaning entire floors alone, explained Mata, who has herself twice experienced sexual harassment on the job. “It’s very dangerous."

It’s also vital for the women doing the work to also sit at the bargaining table, “because sometimes as women, we need something that the men don’t know,” said Mata, whose hotel is currently in bargaining for a new contract.

Keturah Johnson in 2022 became the first queer woman of color to serve as international vice president for flight attendant union AFA-CWA, which is led by Sara Nelson and represents over 50,000 flight attendants at 20 airlines.

People often think of a flight attendant as “a white woman with hair put up in a bun,” and Black flight attendants frequently face microaggressions from managers about their appearance, Johnson said. “It’s happened to me many times because of my natural hair."

And for gender nonconforming flight attendants, being able to wear a uniform that reflects their gender identity is important, Johnson said. So she's leading the fight to update uniform standards to be gender inclusive and permit natural hairstyles, which has resulted in several airlines making changes.

United Airlines, for instance, updated its uniform standards to include gender neutral options in 2021, and Alaska Airlines management adopted gender neutral uniform and appearance standards in 2022, according to AFA. Frontier allowed natural hairstyles for flight attendants in 2021, and this year implemented standardized pricing for all uniforms regardless of size or gender.

“We’re not just there to serve Diet Coke. And so it’s our job to make sure that flight attendants are represented and seen just as they are,” Johnson said. “The world is changed now.”

The Associated Press’ women in the workforce and state government coverage receives financial support from Pivotal Ventures. AP is solely responsible for all content. Find AP’s standards for working with philanthropies, a list of supporters and funded coverage areas at AP.org.

Unite Here Local 2 leader María Mata stands for a portrait in front of the W Hotel on Friday, Sept. 13, 2024, in San Francisco. (AP Photo/Juliana Yamada)

Unite Here Local 2 leader María Mata stands for a portrait in front of the W Hotel on Friday, Sept. 13, 2024, in San Francisco. (AP Photo/Juliana Yamada)

Keturah Johnson, international vice president for flight attendant union AFA-CWA, poses for a portrait in her headquarters office, Wednesday, Sept. 18, 2024, in Washington. (AP Photo/John McDonnell)

Keturah Johnson, international vice president for flight attendant union AFA-CWA, poses for a portrait in her headquarters office, Wednesday, Sept. 18, 2024, in Washington. (AP Photo/John McDonnell)

Keturah Johnson, international vice president for flight attendant union AFA-CWA, poses by a decades old, outdated poster with rules and uniforms for flight attendants, at her headquarters office, Wednesday, Sept. 18, 2024, in Washington. (AP Photo/John McDonnell)