The Brief

Affordable housing. Simply linking those two words might get you an ironic laugh from today’s apartment hunter. But there was a time when the government did have an overall goal of helping you keep a roof over your head. While a few remnants of that philosophy still exist today, we wanted to know: How did it all start — and what happened?

We look into the complicated history of affordable housing, from a Depression-era housing crisis, through communism fears and today’s patchwork of programs.

What is affordable housing exactly?

First, let’s define our terms. Shane Phillips, housing initiative manager at the UCLA Lewis Center for Regional Policy Studies, says people can have different things in mind when talking about affordable housing.

There’s the idea of affordable housing as in living in places that are relatively low cost compared to your income, like living on the edge of L.A. County, for example.

Then there’s what Phillips calls “capital A” affordable housing. It happens in multiple ways, including:

• Public housing (which is owned by the government)
• Subsidized housing that’s income-restricted with rent caps (built with public funding)
• Unsubsidized housing that’s income-restricted with rent caps (not built with public funds but using programs that give regulatory breaks to developers)
• Section 8 (where tenants share rent costs with the government on the private market) 

A brief history of early affordable housing

The Great Depression brought an existing problem to a head: dilapidated housing stock.

According to the National Low Income Housing Coalition, it was common for families with little money to live without hot running water. These homes were seen as “blight” and many were eventually torn down.

The U.S. Housing Act of 1937 created the first federal public housing program in which states had to establish local housing authorities. The act was intended to:

The public housing program was put on hold during World War II but was restarted with the Housing Act of 1949, which declared its goal as “a decent home and a suitable living environment for every American family.”

This act did a lot of things, including giving money to local housing authorities to buy up and rebuild slum properties and offering subsidies for them to build over 800,000 units nationwide.

Meanwhile in the early ‘30s, federal agencies that were precursors to the Department of Housing and Urban Development (HUD) had begun to help people afford homeownership.

The Federal Housing Administration, created in 1934, ushered in mortgage programs that made low down payments and long-term mortgages possible. Until then, most mortgages were written for three to five-year terms and borrowers had to have as much as half of the home’s cost on hand.

Addressing different income levels

Federal programs at that point targeted helping tenants on the very low end of the financial spectrum. Very few options existed for people in the middle — those who couldn’t afford market-rate housing but didn’t qualify for public housing.

Congress saw this gap and wanted to solve it without creating a new and costly government housing program. Their legislation, the Housing Act of 1959, marked the first significant time that financial incentives like low-interest loans were used to coax private developers into building affordable housing. These were directed toward housing that would serve moderate-income people 62 and older.

Later federal additions included a rent assistance program (and precursor to Section 8) in 1965, while other mortgage incentives came in 1968. At the end of the decade, affordable housing subsidies for private developers created hundreds of thousands of units nationwide.

How approaches changed

Former President Richard Nixon at his North Hollywood campaign headquarters in 1962.

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Jeff Goldwater

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Valley Times Collection/Los Angeles Public Library

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A significant shift in affordable housing came in 1973 when the Nixon administration placed a moratorium on federal housing programs. The following year, big changes to our housing programs were largely seen as pulling out of the construction and management game on the federal level.

Nixon was influenced by what was happening in local governments. While World War II had made public housing favorable, eventually public opinion shifted away from it, with Red Scare fears framing it as a communist system. Like many cities, L.A. leaders faced accusations of communist infiltration because of its government-led housing.

The city of L.A. once had a federal contract to build 10,000 public housing units, but it fell through in the 1950s after intense public pressure. L.A.’s last public housing construction ended with the San Fernando Gardens in 1955.

Devolution of authority

After the moratorium, President Gerald Ford introduced the Community Development Block Grant program, which gave federal dollars to local governments with “few strings attached” to do things like improve sidewalks and help rehabilitate dilapidated housing. It began what’s called the “devolution of authority” — passing on the responsibility to plan and implement affordable housing to states and cities. While there is still federal involvement in affordable housing, this program is still in use today with local authorities directing much of the implementation.

Which means that affordable housing differs from region to region. In L.A., our affordable housing is now largely private and public partnerships, while the city’s housing authority has been slowly demolishing public housing for decades and rebuilding some as mixed income housing.

Fifty unhoused people warm up in City Hall after the City Council voted to open the chambers overnight during an unusually cold spell on Jan. 21, 1987.

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Javier Mendoza

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In the backdrop, while rent and house prices continued to skyrocket, more and more people were squeezed out of their homes. In 1987, L.A.’s homelessness crisis had grown to such a point that City Hall was opened to shelter unhoused people during a frigid winter.

Over the decades, the city has tried a myriad of programs, like enacting rent control and establishing a blue ribbon committee to research affordable housing, to push the needle on the issue.

But across its history, affordable housing initiatives have always been criticized. Some feel systems of wealth and racial inequality against tenants have worsened, especially as some groups push against affordable housing.

Others feel the privatization of affordable housing lines the pockets of developers, or that rent programs don’t stabilize market rents enough. Then there are the developers, who often face hefty hurdles to building.

Affordability today

Throughout the housing programs, the debate over who they help and by how much has persisted. New market-rate housing is expensive and limited to pretty high-income people. Subsidized housing — where costs are shared with the government — are limited to low-income and extremely low-income people. For example, to qualify for Section 8, an individual’s annual income has to be at or below $44,150. For a family of four, it’s $63,050.

“Everyone else in the middle just gets nothing,” Phillips said. “They're just kind of left to fend for themselves and that space keeps widening further and further.”

A "For Rent" sign hangs outside an apartment building in northeast Los Angeles.

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David Wagner/LAist

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There’s also the issue of time. Affordability requirements are governed by legal contracts known as covenants — where the owner agrees to maintain a unit as affordable for a specific period of time (typically 55 years in L.A.).

So if you do the math, our affordable housing stock is on a ticking clock. In 2022, L.A. County had 133,909 affordable rental housing units, but nearly 8,000 places were at risk of losing affordability, according to the California Housing Partnership.

But new developments are added on an ongoing basis. Among the locations are Broadway Housing in Santa Monica from 2012 and the 4252 Crenshaw modular housing development completed in 2019.

L.A. County still is short a massive 499,430 affordable homes. It’s a high number that experts say we can’t keep up with. The shortfall only decreased by 82,393 homes between 2014 and 2019.

“It will just never come close to meeting the need,” Phillips said. “We need a bigger strategy than just ‘maybe a few billion more dollars that'll subsidize a few thousand more homes.’”

This story was originally published by CalMatters. Sign up for their newsletters.

In the face of the nation's highest gas prices, California lawmakers approved a bill to ease restrictions on E85 conversion kits — devices that let conventional gasoline cars run on a cheaper, mostly ethanol fuel blend.

Assembly Bill 2046, dubbed the “Access to Affordable Gas Act” by its author, Assemblymember Rhodesia Ransom, a Stockton Democrat, advanced through the Assembly on a 59-0 vote with no debate or opposition.

The measure is the latest example of Sacramento lawmakers scrambling to respond to gas costs that have soared amid the Iran-Israel war, which has rattled global oil markets and pushed California pump prices above $6 a gallon. It now heads to the California state Senate and would need Gov. Gavin Newsom’s approval before it becomes law.

“Californians consistently pay more at the pump than drivers from other states, and gas prices are once again climbing across the state,” Ransom said on the Assembly floor Thursday. “For commuters and working families, [the proposal] offers a practical way to save money.”

If approved in its current form, the measure would exempt manufacturers of E85 converter kits from an approval process by the state’s primary climate regulator, the California Air Resources Board, which requires companies to demonstrate the devices do not increase a vehicle's emissions. The bill would leave in place a separate federal certification process run by the Environmental Protection Agency.

“Members in Sacramento are looking for ways to try to reduce costs — or appear to reduce costs of driving — and so this is a way to do that,” said Aaron Smith, a UC Berkeley economist and fuels expert.

The converter kits, which cost between $800 to $1,250, according to a legislative analysis of the bill, would let drivers convert their cars to run on both gasoline and E85 fuel.

E85 is a blend of up to 85% ethanol and 15% gasoline; the share of ethanol typically is between 55% and 85%, said Smith, the Berkeley expert.

Jeff Wilkerson, government affairs manager for Pearson Fuels, the largest E85 fuel provider in the state and a bill supporter, said E85 — much of which is made from Midwest corn — is largely insulated from overseas oil shocks that drive California gas prices. The ethanol blend has sold for $2 or more less per gallon than gasoline during recent price spikes.

While E85 is typically priced lower than gasoline and can reduce petroleum dependence and carbon emissions, it delivers 20% to 30% fewer miles per gallon, according to the air board, meaning drivers only save money when E85 is priced at least 20% to 30% below gasoline.

About 1.3 million vehicles in California can currently use the fuel, which is sold at about 640 stations statewide — just 3% of the state’s more than 15,000 fuel pumps, according to the bill analysis.

Ransom said more E85 pumps would be built if the state loosened restrictions and encouraged demand for the fuel blend. She stressed that her bill would present E85 as an alternative.

“For some people, it may not be a wise choice, but at least now it’s going to be a choice,” she said.

Environmentally, the fuel is rated cleaner than regular gasoline by California's Low Carbon Fuel Standard. But that rating has critics. Smith, the Berkeley economist, said the benefits of ethanol are likely overstated. Official numbers likely understate emissions from land use as rising corn demand for ethanol pushes farmers to clear forested land.

The state’s own certification record offers a cautionary tale. Lindsay Buckley, a spokesperson for the board, said the agency has received only five applications from companies for E85 conversion kits since 2008 and that none has cleared the certification process, which is designed to ensure modified vehicles still meet their original emissions standards. Supporters of the proposal argue the board moves slowly and its regulations are burdensome.

But loosening that standard carries its own risk, cautioned Aaron Kurz, senior consultant on the Assembly Transportation Committee, especially now.

As the federal government has stripped scientific expertise from regulatory decisions, he wrote in his analysis, “this committee should consider if the state should cede authority over an inherently scientific process and set a precedent for transferring approval authority to the federal government.”

MOUNTAIN VIEW – Google is changing what it means to Google.

The company this week announced significant changes to its search box — that austere, single-line input field on its homepage that has been the world's most popular entry point into the web for around two-and-a-half decades.

The new version looks similar to the old one-line text box, but it's dynamic, expanding with longer queries. Users can also drop videos, pictures and files into it for what Google calls "multimodal" search.

Behind the scenes, a bigger shift is under way. Google is merging artificial intelligence and traditional web search in a move that Liz Reid, who oversees search at Google, said brings "the best of web and the best of AI together."

Critics say folding AI deeper into search risks further muddying the waters around the provenance of information gleaned from the web and could take agency away from users. A chatbot is likely to return a summary with only a few links to further information, unlike a web search that returns many pages of links.

But the shift is, in some ways, not surprising, given Silicon Valley's hard pivot toward AI, with Google and others investing billions in the technology and refocusing corporate strategies around it.

For about a year, Google has put "AI Overviews" — short summaries — at the top of some search results. "What we've seen with AI Overviews is that people don't want either just an AI or the web. They want a mix of both," said Reid.

She said she's noticed that users have started to ask longer questions, with more natural language, rather than fragments or key words. "They're asking the question that they really have," Reid said.

For Google, that potentially unlocks new understandings of user intentions. "If you start using more natural language, if you're having a conversation, when you've shifted from researching into buying, you've sort of indicated that. And so we can put better ads because we understand what that is," Reid said.

Google is also introducing agentic functionality to search, so that users can ask it to do tasks over time — like search for theater tickets at regular intervals or send shoppers a notification when something goes on sale or conduct a weekly scan of the internet for local events.

Carolina Milanesi, an independent technology analyst, said Google is trying to make its cash cow business — search — richer and more personalized, and it will make shopping easier. But there is a risk that users may have fewer choices about what to click.

"Right now it's: I ask a question, I get a bunch of answers and I feel that I'm in control as to which answer I take, or if I'm looking for something, which product I'm going to end up buying. That is going to be less so going forward," she said.

Milanesi envisions AI-enabled search and agents proposing products to consumers — perhaps even those they have requested — but with less clarity or choice around where it's coming from.

"If you're going to say: 'I want a pair of Jordans, go find them,' you're not necessarily sure what steps have been taken and whether the AI has used a source or a store that was paid for and, therefore, came up in the search results," she said, "or if AI actually went and did their due diligence and picked the best for me as a customer."

Sarah T. Roberts, director of the Center for Critical Internet Inquiry at UCLA, said the algorithmic underpinnings of Google's web search results have long been "by design, inscrutable to end users," and there's more to it than simply the best of the web floating to the top of any given search. Adding AI will only make the system more opaque, she said.

"What's happening now with AI is that that complexity that already existed will be further obfuscated and even more difficult to unpack," she said.

She noted episodes where Google's AI has provided bad results, including advising putting glue in pizza and eating rocks. "Those gaffes shouldn't be forgotten as Google makes this transition," she said.

And critics say that driving more Google users from web searches to interacting with AI will exacerbate the risks of the so-called "Google Zero" scenario, where the growth of AI queries kills off web search and suffocates the internet click economy as we know it. That includes online shops, web advertisers and news organizations that all depend on referred traffic from Google.

While the redesigned box will be the same for all Google users, there are various tricks and tips online for people who want to disable or avoid some AI functions when using Google.

Google is a financial supporter of NPR.

Early every Saturday for the last three and a half years, William Campbell, 61, leaves his Silver Lake home to be at the Angels Flight station for the first ride at 6:45 a.m.

Campbell is one of a team of operators behind the proverbial wheel of the two near-identical funiculars — named Olivet and Sinai — that go up and down a 33% angle slope from Hill Street to Bunker Hill in downtown Los Angeles.

“You’re a part of living history,” said Campbell, who is dressed in an orange and black waistcoat and bow tie, and wears a bowler hat with a monarch butterfly on top. There’s a reason for that, he said mysteriously.

Angels Flight on Bunker Hill.

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James Bartlett

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Today, I am the first rider. Soon after, I am joined by a family visiting from Texas.

“I was just looking at a local tourist place, and I just saw this small, cute railway,” said Michael Nguyen, who was alongside his mother and sister. “I was like, oh, this looks interesting. And I saw that you can actually go on it. I was like, OK, that’s pretty dope.”

Masterminded by lawyer, politician and engineer Col. James Ward Eddy, the Angels Flight “hillevator” opened on New Year’s Eve 1901 as a way for people to travel up and down Bunker Hill, which was then the place where the city’s wealthy population lived.

The journey took them down to the streets and stores below and from 1917, Grand Central Market, with the first passengers paying just a penny fare for what was billed as the “shortest railway in America,” traveling just 298 feet.

When he’s not working his weekday full-time day job investigating animal cruelty and abuse, Campbell spends his spare time looking through online newspaper archives for any information about Angels Flight.

Angels Flight Railway.

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James Bartlett

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LAist

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Angels Flight Railway.

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James Bartlett

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LAist

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Originally located by the 3rd Street Tunnel — at the end of the block from where it is now — the train has been through several changes, as has Bunker Hill itself.

“All the wealthy people moved to Beverly Hills, and Brentwood, and Bel Air, and beyond. And all their wonderful Victorian mansions were turned into boarding houses, and it attracted a lower income, more diverse population, which resulted in blight and crime — at least according to the city,” Campbell said of Bunker Hill's transformation.

City officials authorized Bunker Hill to be all but razed in the 1950s and '60s, and Angels Flight was put into what was promised to be temporary storage for a year or two, despite protests from singer Peggy Lee and others.

The year was 1969. And it took nearly three decades for its return. Angels Flight welcomed passengers again in 1996 to its current location after test runs were made with cases of beer and soft drinks weighing 9,000 pounds. The cable cars were rebuilt exactly as before, but with modern safety requirements, such as Sinai having wheelchair space.

A 2001 accident in which one person died and seven were injured saw another long closure until 2010, and there was a derailment in 2014, which saw another short shuttering. But Angels Flight has been running ever since 2017, save the odd mechanical problem.

William Campbell.

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James Bartlett

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LAist

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Angels Flight keepsakes made by William Campbell for riders to take.

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James Bartlett

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LAist

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Campbell describes himself as a cheerleader for Angels Flight, and you can easily see why. During his shift he pins up a 1904 photo of the city’s landscape taken from an 80-foot-high observation tower at the original location, so people can compare it to the skyscraper skyline of today.

“At one time you could see all the way to Catalina,” he noted.

There is also a display about near-forgotten Bunker Hill folk artist Marcel Cavalla, and Campbell gives away Angels Flight bookmarks, stickers and maps, all of which he researches, designs and prints out of his own pocket.

One of his projects, old advertisements from 1901 to the 1940s, is displayed in the panels above the seats, and was installed a couple of months ago.

Interior of Angels Flight, showcasing old advertisements from 1901 to the 1940s that Campbell installed.

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James Bartlett

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LAist

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One of the vintage ads for Catalina Carrier-Pigeon Service.

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James Bartlett

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LAist

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There's everything from old Market Basket supermarket ads, to Barbara Stanwyck shilling for Lux toilet soap, to a standard power mower from John Bean manufacturing, to one for the Catalina Carrier Pigeon Service, which operated from 1894 to 1902, taking messages from Avalon to Bunker Hill.

And the monarch butterfly on his hat? That’s related to his Angels Flight “holy grail,” the one question he can’t definitively answer: why were they painted orange and black?

With that, Campbell grabs his binoculars and sees there are passengers waiting for a ride up, so I get into Olivet and wave goodbye as I travel down to Hill Street.

A group called Neighbors Helping Neighbors has been clearing overgrown weeds for free on fire survivors' empty lots in Altadena.

They’ve finished 10 with many more to go. They’re keeping at it not just to keep things tidy, but to avert another disaster as the region enters fire season — and their efforts are spreading. More than 200 homeowners have signed up, after hearing about the group from its Facebook page and through word of mouth.

“I'm 5 feet 2 inches tall, but there were weeds 6 and 8 feet tall,” said Antoinette “Toni” Bailey-Raines, the ringleader. She is also a co-founder of Altadena Talks Foundation, a nonprofit started in the wake of the Eaton Fire.

Bailey-Raines lives in San Dimas but grew up in Altadena. Her parents and sister all lost their homes in the Eaton Fire.

“I went to my parents' lot one day,” she said. “I loaded up the back of my car with my lawnmower, my blower, my rake, because I wanted to make sure their lot was cleaned up.”

It took seven hours, but she figured all that overgrown vegetation can't be good for Altadena with the fire season just around the corner.

And just like that, the idea for Neighbors Helping Neighbors was born.

Preventing another disaster

Antoinette “Toni” Bailey-Raines, founder of Neighbors Helping Neighbors.

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Fiona Ng

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LAist

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Antoinette “Toni” Bailey-Raines at one of the cleared lots.

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Fiona Ng

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LAist

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The very first lot, just south in Pasadena, was cleared in mid-April. Bailey-Raines said the property was getting notices from the city to clear the lot or face escalating fines. Pasadena conducts brush clearance inspections every spring and summer.

Toni said the family had moved to Mississippi after the Eaton Fire.

“You lost everything, and then somebody's gonna tell you they're gonna give you a fine because you have weeds on your lot and you're not even here to see that?” Bailey-Raines said.

That day, she rounded up a group of nine people, including her son and his friend. A neighbor across the street was suspicious at first, but eventually told her, "You have me for about an hour." He stayed for two.

The job took less than four hours.

A growing movement

On May 13, dozens of volunteers showed up in Altadena to clear seven lots in one morning.

One of them — a 14,000-square-foot lot — belongs to Sarkis Aleksanian and his family. He had reached out to Bailey-Raines in late April, after learning about the group from a neighborhood WhatsApp chat.

“I was looking into cleaning up the lot and really daunted by the prospect,” he said. “I was worried that the lawn would dry up and be a problem.”

Aleksanian and his wife were on hand to help out. It’s the one thing that Bailey-Raines requires — for the homeowners to be there.

“I've asked them that if they're able-bodied to be here and help,” she said. “You're here. You're encouraging people, and you're helping on your lot. [Sarkis] was doing everything from weed-eater, to chainsaw, to whatever, and that's what it's about.”

This 14,000-square-foot lot in Altadena was cleaned up in less than two hours on a recently Saturday.

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“It was just remarkable, I tell you,” Aleksanian said. He said he recognized some of the volunteers that morning — folks he sees in the community.

And he did encounter someone he knew — a high school acquaintance from years back. “It's neighbors helping neighbors, just like she called it, you know?” Aleksanian said.

His lot was finished in 90 minutes.

More is needed

With a growing waitlist, what is needed are people and equipment — from gloves and trash bags to the hardware.

“I have six brush cutters and two chainsaws and a couple trimmers, but I need, like, triple that at least,” she said.

Same goes for rechargeable batteries that power these tools — which Bailey-Raines juices up with generators they bring on-site.

A number of organizations — including Neighborhood Survants, Altagether, Project Passion, My Tribe Rise, Dena Heals — have granted money and donated equipment and manpower. Bailey-Raines has also put in her own money.

“My dream is one Saturday morning to have 500 people and that we clear a whole street, a whole block — so that this list of 200 can go down, and as others hear about it, they get on it, and we as a community do this as neighbors to help one another,” she said.