Since 2000, nonprofits and government entities have
increasingly sought to diminish negative perceptions associated with
manufactured housing by sponsoring programs that replace substandard mobile
homes with state-of-the-art, energy efficient units. As national organizations,
such as the
Corporation for Enterprise Development and
NeighborWorks America, consider
scaling up these programs, it is important for housing professionals to ask:
what has worked and what has not in this policy space?
As a 2014
Edward M. Gramlich Fellow in Economic and Community Development at the
Joint Center for Housing Studies, I had the opportunity to explore one aspect
of this question: whether or not nonprofits should focus on replacing
manufactured housing built before the introduction of federal building standards
in 1976. Some replacement programs exclusively target manufactured housing
built prior to the advent of the national building code for manufactured
housing (“the HUD Code”) under the rationale that pre-HUD code units are in the
worst condition.
The 2011
American Housing Survey (AHS) suggests, however, that units built prior to
the introduction of this code in 1976 are
not the most likely ones in the
manufactured housing stock to be inadequate. In fact, while 10.6 percent of
units built between 1970 and 1975 are in inadequate condition, the figure is
10.8 percent of those built between 1985 and 1990. More manufactured homes that
are now in inadequate condition were built after the HUD code but prior to the
code’s 1994 update (approximately 280,000 homes) than were built prior to the HUD code (144,000 homes).
Source: American Housing Survey, 2011
As shown in Figure 2, pre-1975 units do not demonstrate significantly higher
levels of physical inadequacy than 1975-1995 units across a range of features.
There are several plausible explanations for this phenomenon. First, the
construction standards enacted after the HUD code might not have ushered in an
epochal shift. Substandard materials continued to be used in construction into
the 1980s; problems with unit installation on sites and enforcement of building
standards can undermine the effectiveness of the HUD code. Second, the worst
conditioned manufactured homes built prior to the 1976 code might have already
fallen out of the market. The units that remain are those that have benefited
from weatherization or maintenance.
Source: American Housing Survey, 2011
Roughly 10 percent of manufactured homes, which is approximately the percentage of units in inadequate condition for
homes built from 1965-1990, may also represent a natural level of inadequacy
for manufactured housing after twenty years in use. Figure 3 compares 2011’s
stock of inadequate manufactured housing by year built with the inadequate
stock from 2001. A relatively small uptick in the percentage in inadequate
condition is evident among units older than twenty-five years. Particularly
striking is the sharp decline during the 2000s in the number of inadequate
units from 1960-1975: these units are leaving the housing stock. Meanwhile, the
number of units from the 1980s in inadequate condition has risen sharply. What
policymakers must consider is whether post-HUD code units built in the 1980s
will soon leave the market at the same rate as 1960-1970s pre-HUD code units
did during the 2000s. At present, the large number of inadequate condition
units that were built after the HUD code suggests that the administrators of
programs that aim to replace substandard housing should not limit eligibility
to pre-HUD code units, which is a common practice. Instead, all inadequate
manufactured units, regardless of the period in which they were built, should
be eligible for replacement.
Source: American Housing Survey, 2001 and 2011
Read more in Matthew's Gramlich fellowship paper, Eradicating Substandard Manufactured Homes: Replacement Programs as a Strategy
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