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Housing

Introduction

The state of housing in the City has implications that ripple out to many other aspects of life. If there is not sufficient workforce housing, businesses may leave because they cannot find employees who are willing to work in lower-wage jobs. If housing is not available or does not meet the standards of today’s families, they may be less attracted to the City and choose to live elsewhere. If housing deteriorates, crime may increase. These all also play into residents’ ability to move easily within the City as their housing needs change.

One of the surveys conducted as part of the public engagement process for Chesapeake 2045 asked questions about residents’ ability to downsize (move into smaller housing) or upsize (move into larger housing). This reflects how easily residents can move along the housing continuum. This continuum encompasses a wide range of housing options from homeless to standard market ownership, including market rental, affordable rentals, emergency shelter, etc.

Circumstances may move a person up the continuum, such as increased income, completed education, or recovery from addiction. Circumstances may also move a person down the continuum, such as loss of a job or partner, retirement, or illness. Each piece of the continuum has different goals and strategies associated with it. For example, once residents own a market-rate home, strategies should be in place to help ensure homes

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Housing

DOWNSIZING

Respondents were confident that they could downsize to a house somewhere...

⬚ figure 15.1% in their neighborhood ⬚ figure 43.2% in the entire City of Chesapeake ⬚ figure 27.1% in their planning area ⬚ figure 69.9% outside of the City of Chesapeake

UPSIZING

Respondents were confident that they could upsize to a house somewhere...

⬚ figure 35.8% in their neighborhood ⬚ figure 63.8% in the entire City of Chesapeake ⬚ figure 54% in their planning area ⬚ figure 69.9% outside of the City of Chesapeake

are maintained in the long run, particularly as residents age. For supportive housing, strategies help provide residents with the structure and treatment they need so that they can eventually move out and support themselves in permanent housing.

When one piece of the continuum is invested in, it can free up resources in other parts of the continuum. For instance, increasing market rental availability can facilitate retired homeowners in finding satisfactory rental properties, thereby freeing up the housing market. When affordable home ownership is supported, it creates room for more residents to come off waitlists for affordable rental assistance.

The responses to the survey were informative and shown above.

Residents are more confident in their ability to upsize in Chesapeake than to downsize if the need arose, especially within their existing neighborhood. However, 69.9% were confident they could downsize outside of the City. This indicates both a lack of diverse, available, affordable housing in neighborhoods, and that

— AFFORDABILITY CONCERNS —

“Yes, we wanted to “downsize”, could not find a nice affordable smaller home!”

“The cost of housing is out of control for all ages and life stages.”

“Affordable housing for working families is a MUST!!!”

“The cost of housing is nearly unaffordable for the working class.”

“With age comes the need for one story (ranch style) housing. I don’t see that in Chesapeake.”

“I’m a disabled veteran working with a fixed income so I’m any truly uncertain about my future.”

“Rent is high. Single mom of three just back to work after heart surgery recovery need a 3 bedroom but cannot afford.”

“Affordable housing for downsizing families is difficult.”

“As a widow I cannot find a simple small home with a small fenced yard. Everything is old and outdated or too expensive.”

“I am stuck here. I like my home, but I could not afford to upsize or downsize. Housing choices have become too expensive for me.”

residents are not simply without the means to relocate, since the majority believe they could find housing outside of Chesapeake.

When asked these same questions about upsizing, there was significant increased confidence across all possible responses in the ability to find upsized housing, with more people asserting that they could find upsized housing more easily than downsized housing in all categories. Open-ended comments further clarify respondent’s feelings on the topic. The City must do more to provide housing options for all residents of Chesapeake.

HOU 1: Support a balanced inventory of housing across the housing continuum, reflecting Chesapeake’s differing demographics, where all communities include housing options that are responsive to the needs and desires of residents.

HOU 2: Support efforts to increase homeownership across the City.

New Housing

New housing is the most typical development that occurs in Chesapeake. Chesapeake’s housing stock is primarily made up of:

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67.9% of housing is single-family detached homes, 12.2% is townhomes, and 12.9% is 5+ unit multifamily

This is much lower than the regional average for multifamily, which is 18.8%.

The remaining housing is 1.7% mobile homes, and 5.3% multifamily housing with fewer than five units.

Homeownership

Chesapeake has a high homeownership rate at 68.2% (in 2022), particularly compared to the region. Given the City’s high quality of life, there is a demand for housing here. This, coupled with the national housing shortage (read more in the Affordable Housing section), means that new housing often commands a premium price.

Housing Prices

In early 2023, the median sales price of all housing types (single-family detached, townhome, condominium) reached $370,000. Single-family detached houses specifically reached a median price of $400,000 and a mean price of $515,000 city-wide. Prices have escalated quickly in the past few years: in March of 2020 the median sales price of a townhome was $255,000. In March 2023, the median sales price was $399,000. That is an approximate increase of 56.7% in three years.

The rental market has a low vacancy rate (4.7% in 2023, just below the ideal rate of 5.0% which allows for easy tenant movement), and the average rent is $1,427 per month. Chesapeake does not produce enough rental units, particularly multifamily, to meet the need. Because there is such a low supply of studio housing, average rent for studio apartments is higher than the overall rental average at $1,718 per month. Similar to the for-sale market, rents have risen significantly, increasing nearly 24%

between 2018 and 2023. Low vacancy rates allowed landlords to raise rents; at the same time Chesapeake did not construct enough multifamily to meet increasing demand.

Housing Size and Type

The type of housing being built matters, too. Average home size has increased over one thousand square feet since the 1960s, even as households shrink. What is being built may not be accommodating current or future needs.

The average size of a single-family detached house varies in the City; in South Norfolk the average is about 1,500 square feet. In Southern Chesapeake, the average is closer to 2,511.

In order to meet the housing demand, Chesapeake will need to both preserve existing housing (see Supporting Existing Housing) and build new housing. However, as Chesapeake’s demographics shift, housing must be built that suits our community. The number of households with only one or two members

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is growing, as is the senior population. This means there is an increasing demand for smaller housing. These facts beg the question as to why large single-family detached homes continue to dominate the City’s housing stock. Townhouses, multifamily apartments, and condominiums should grow as a share of the

Average Size of Single Family Detached Housing By Decade in Chesapeake (Square Feet)

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overall housing market. Per the City’s housing report,

“Failure to moderate the housing inventory shortfalls and the resulting rent/price escalations may undercut the City’s ability to recruit and retain workers for current and future businesses.”

Although the market is the driving force for home building and prices, there is still quite a bit the City can do to promote different types of new housing.

Lot Size

The City should review its Zoning Ordinance for necessary changes to allow for smaller lots sizes in some parts of the City. This will reduce the cost of building, making it easier for developers to build smaller houses and still make a profit. It also provides a desired product that was mentioned several times in community engagement: smaller, detached homes with little yard to maintain.

Quality

As the City promotes smaller and other types of housing, it’s important that it be clear this does not mean poor housing quality. The City should define standards of quality and associated design guidelines that serve as a minimum threshold for quality housing. Note that this does not mean dictating specific designs or architectural styles, or that all material choices are the highest grade. These standards are about ensuring well-built,

long-lasting, safe housing for all, regardless of price point. In this same vein, the City should advocate for more energy efficient new construction to maintain housing and affordability in the long-term.

Accessory Dwelling Units

Accessory dwelling units (ADUs) are a proven way to increase housing in a City without taking up large swaths of land. These secondary residential units may be independent dwellings for family members or rented to a tenant. Since they are located on the same property as an existing single-family home, they do not require the construction of new roads or infrastructure, and they add smaller housing that meets an unfilled need.

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– ACCESSORY DWELLING UNIT, DEFINED –

An independent dwelling unit located on the same property as a single-family home. They may be attached to the single-family home with a separate entrance, or a separate structure. Localities can regulate the location, size, and other characteristics of an ADU.

ADUs have the added benefit of supporting intergenerational family living, which may be particularly important to some cultures, as well as families that need to share expenses.

According to Pew Research Center, multigenerational living (where the household has two or more adult generations) is rising among all age groups; in 2021, a quarter of U.S. adults aged 25-34 lived in a multigenerational household. ADUs should be allowed in parts of the City where they are compatible and will not generate major traffic or infrastructure impacts. The Zoning Ordinance should be amended to facilitate them.

Missing Middle

Another housing type that the City can facilitate is “missing middle” housing.

Missing middle fills a gap between single-family low-density housing and dense multifamily housing.

It includes duplexes, triplexes, quadplexes, and other medium-density buildings. The City should support this type of housing,

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particularly as a way to increase variety in individual neighborhoods during redevelopment, and the Zoning Ordinance should be examined for any changes that would facilitate this type of housing.

Innovation

There are innovative ways that other localities have used to promote the production of specific housing types. These “fast track” programs help get housing built and shorten the development review process. For example, pattern books can be adopted by the City for certain housing (e.g., ADUs); if the developer uses a pattern from the book, building plan reviews may be eliminated or shortened. The City should research these programs and consider implementing them to increase housing. Similarly, the City should remain open to innovative solutions from developers that provide housing in a cost-efficient way.

As demographics continue to shift and the City takes on new initiatives to support housing construction, it’s important that staff continually assesses production, availability, and affordability and whether it is lining up with residents’ needs so that goals can be adjusted if needed.

HOU 3: Continue to build new housing that will close the gap between housing need and housing availability. New housing must reflect the changing characteristics of the Chesapeake household, particularly in regard to household size, our aging population, affordability concerns, and lifestyle preferences.

HOU 4: Support housing projects that reflect a shrinking household size and specifically housing designed for 1-2 person households.

HOU 5: Define flexible standards of quality design and design guidelines as a means of evaluating proposed projects that can be applied to all project types and price points.

HOU 6: Encourage energy efficient building practices to assist with long-term affordability of housing.

HOU 7: Review the Zoning Ordinance for amendments that allow for smaller unit and lot size in appropriate zoning districts.

HOU 8: Support the development of multifamily housing that includes five or more units.

HOU 9: Amend the Zoning Ordinance to allow accessory dwelling units in appropriate districts.

HOU 10: Support the development of missing middle housing, and consider Zoning Ordinance amendments that are needed to allow for these housing types.

HOU 11: Identify and implement tools such as “fast track” programs, including the creation of pattern books, to facilitate the development of missing middle housing, accessory dwelling units, and other housing solutions.

HOU 12: Support innovative solutions that provide new housing in a cost-efficient manner.

HOU 13: Review and report on housing production, affordability, and availability on an annual basis to reassess housing goals over time.

HOU 14: Implement a process whereby the City reviews properties that may be appropriate for multifamily use and works with property owners for potential rezonings to increase housing opportunities.

Infill Development

“Infill” is the term used to describe development that is located among existing communities, where there are established streets and infrastructure. Infill may be redevelopment (replacing an aging or underperforming building with something new) or greenfield development, where a property is being utilized for the first time.

Greenfield development is appealing for

— GREENFIELD DEVELOPMENT — Development on land that was previously undeveloped, with no buildings or infrastructure.

several reasons. There are typically no known environmental contaminants, minimal under- or above-ground infrastructure to work around, and no existing structures to demolish and haul away. In short, it’s often cheaper and faster to develop on a greenfield. Because of land availability in Chesapeake, greenfield development is often appropriate for certain projects, such as new single-family detached neighborhoods.

That said, greenfield development is more likely to lead to sprawl and makes less efficient use of the finite land in the City. On the other hand,

infill development keeps older areas of the City vibrant as housing, retail, and commercial evolve, making sure that residents in established parts of the City have access to the same amenities.

This includes the adaptive reuse of non-residential buildings for residences. Such development should still be sited appropriately and have features that support residences. Brownfields, contaminated or potentially contaminated sites, are another option for redevelopment. These properties, which may currently be a liability, can ultimately be repurposed into a productive use.

Although greenfield development may be cheaper from a developer’s perspective, infill development is often more cost-effective for the City. This is because the City is ultimately responsible for maintaining most

— WHAT IS THE CHESAPEAKE LAND BANK AUTHORITY? — The Authority was established to help address vacant, abandoned, or tax delinquent properties in the City. It may purchase such properties if it sees a City use for them, if there is a blighted use the City would like to facilitate the removal of, or to make them available to private developers. It also administers grants and works with property owners to help prevent properties from falling into such disrepair that they may become vacant or delinquent.

infrastructure, even if a developer pays for the initial installation. A developer may lay pipes or build roads, but doesn't have to maintain them and fix leaks or repair potholes. Development that makes use of existing infrastructure, or requires smaller amounts of it, will usually be fiscally preferable for the City (note that

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if a redevelopment significantly shifts the type of uses or density it is likely to require infrastructure improvements: a warehouse converting to a residential building will require upgrades to water and sewer, for example).

While infill is an important tool for development, and is supported by the City, infill development must be well-planned. Infill may be single parcels, such as a home fitting into the fabric of an existing neighborhood, but the City can also actively advance larger housing projects. This can be facilitated by working with the Land Bank Authority to assemble land that is sufficiently sized for successful, attractive housing developments that include a variety of housing.

Most importantly, infill must be compatible with surrounding properties and the character of the neighborhood or area it is located in. Infill should match or complement existing development in design, including size, setbacks, and architectural style.

HOU 15: Support infill development as a key tool for revitalizing distressed and underserved areas across the City, both for residential and commercial.

HOU 16: Work with developers and the community to design infill projects that are compatible with surrounding properties in terms of size, setbacks, stormwater, utilities, massing, architectural style, etc.

HOU 17: Encourage the adaptive reuse of existing non-residential buildings for residential use where appropriate.

HOU 18: Use land banking and land assemblage as tools to create large enough tracts that thoughtful, attractive, efficient projects can be created.

HOU 19: Review the Zoning Ordinance for amendments that can be made to support infill development.

Supporting Existing Housing

Maintaining a safe, sanitary, and attractive housing stock is important for protecting existing residents and keeping housing affordable. New housing is often at the forefront of officials’ minds because of the new impacts (good and bad) it creates, but existing housing requires investment and care to help it thrive and keep it from falling into disrepair. This is particularly true for middle neighborhoods.

A middle neighborhood typically has older housing stock, and is not declining, but is also not growing and thriving.

Chesapeake has many “middle neighborhoods.” They are stable and often hit a sweet spot in terms of building density – individual homes have yards, but neighborhoods are more compact than some of the more modern sprawling suburbs. Changes to the way we live, such as decreased importance on walkable amenities and community needs (e.g., schools), and desire for certain house amenities (such as multiple bathrooms) can make some of these neighborhoods vulnerable to decline. Zoning may not support these neighborhoods, as many were built on lot sizes that are no longer allowed.

Strategies must be in place to allow these neighborhoods to survive and evolve as necessary. This may mean reconsidering the

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proximity of shopping, institutions, parks, and other amenities to those neighborhoods. It also may mean allowing flexibility in the Zoning Ordinance to allow for more home upgrades (such as by reducing setback requirements). Neighborhoods typically have individualized needs and strategies may need to be targeted.

While some concerns increase the older homeowners become, and the longer a single owner occupies a home (discussed in more detail in the Senior Housing section), all property owners benefit from these considerations.

Many solutions are those that require funding, both through City and non-City resources, to help homeowners, particularly low-income homeowners, maintain their homes.

Historic Home Maintenance

In the South Norfolk Historic District (SNHD), and future districts that may be established, costs to maintain homes can be even higher as homeowners may be required to use certain

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materials or level of craftsmanship to meet historic design guidelines. For example, some homes in SNHD currently have metal roofs. To replace a metal roof with another metal roof can cost $30-$40 thousand dollars, which may be triple (or more) the cost to replace it with standard asphalt shingles. This issue is a particular one that the City has taken steps to address by establishing a South Norfolk Residential Rehabilitation Grant Program, administered by the Chesapeake Land Bank. This program can be replicated, and other incentives can be explored as well.

Energy Efficiency Programs

One common program that many localities implement is for energy efficiency improvements. As homes age, the structure can deteriorate and become less protective from the elements. For example, aging windows may warp or pull away from their seal, creating gaps for cold or hot air. Additionally, over time new materials and building techniques are discovered that are cheaper, more efficient, and less likely to deteriorate as time passes. There are existing programs that address these in Virginia, such as the Weatherization Assistance Program. The City can help connect residents to these resources and establish a program of its own to make sure resources are available for Chesapeake residents.

Improved Relationship with the City

When it comes to home maintenance, all parties benefit from strong relationships between property owners and City inspectors.

Rather than simply being a punitive force that hands out violations, inspectors can help maintain and improve the condition of homes by working with homeowners to identify issues and connect them to resources to help resolve violations. When inspectors can be proactive and a regular face in the community, homeowners also have a connection to the City and can more easily navigate the system when code issues arise.

HOU 20: Foster and participate in the preservation of Chesapeake’s established neighborhoods and revitalization where needed.

HOU 21: Identify and conduct an assessment on needs and strategies to support the vitality of middle neighborhoods.

HOU 22: Expand and promote the real estate tax abatement and grant programs to provide additional incentives for low-income homeowners to improve their homes, and encourage adaptive rehabilitation/reuse of historic structures.

HOU 23: Implement an energy efficiency improvement program for existing housing.

HOU 24: Maintain and improve the condition of the existing housing inventory by proactively enforcing zoning and building codes, and if necessary, connect homeowners with available resources to remedy violations.

Affordable Housing

The United States is experiencing an affordability crisis. According to the American Planning Association, between 2008-2018, the nation experienced its lowest construction numbers since 1960, resulting in a national shortage of about 4 million housing units. The effects of this shortage are felt across the country, and Chesapeake is no exception (see the comments in the highlight in this chapter’s introduction).

While Chesapeake has the highest median income in Hampton Roads, 18.1% of the population earns less than $35K, a significant proportion that must be recognized.

Income definitions

There is a lot of data that breaks down who exactly in the City is struggling, and this data enables us to make targeted changes so that housing is attainable for all. To analyze housing, households are grouped based on their relative Area Median Family Income (AMI), which for Hampton Roads is $106,500 (FY 2025) for a family of four. “Low income” in Hampton Roads for a family of four is $82,500.

Often, when residents hear the term “low income” they envision someone who may not be working regularly, or who is a “burden” on other taxpayers through their use of services. In fact, according to the Bureau of Labor Statistics (BLS), the average wage for firefighters in Virgina Beach-Chesapeake-

Norfolk-North Carolina statistical area is $57,520; an individual making $59,650 is considered low income. Preschool teachers, making an average of $38,660, hover close to “very low income.”

Cost-Burdened Residents

This plan uses the U.S. Department of Housing and Urban Development (HUD) definition of affordable, which is housing that requires the occupant to spend no more than 30% of their income on housing costs, including utilities. Those spending more than 30% are considered “cost burdened” as they are spending so much on their housing that it undercuts their ability to pay for food, childcare, transportation, and other essentials. Those spending 50% of their income or more are “severely cost burdened.”

In 2022, 12,360 out of approximately 93,480 Chesapeake households making the area median income or less were cost burdened; an additional 11,970 were severely cost burdened. These numbers are projected to increase by 2045 to 16,140 cost burdened and 15,990 severely cost burdened households. In

— DEFINITION OF AFFORDABLE HOUSING —

Housing for which the occupant is paying no more than 30 percent of gross income for housing costs, including utilities.

short, many households in Chesapeake are struggling to pay for housing, and if we do not act, the problem will only get worse.

Existing City Support

The City does serve some of those in need.

HUD identifies 43 Chesapeake developments with Federal financing for a total of 5,135 units. This includes five public housing developments that have a total of 467 units. Additionally, Chesapeake Redevelopment and Housing Authority (CRHA) operates 228 non-HUD apartments at below-market rents. The waitlist for placement in these developments was opened in early 2025 for the first time

Income Range Descriptions

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Housing

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since 2021, resulting in over 4,000 applications received in one day. This indicates a continued unmet demand for income-based and below-market rate units. CRHA also provides project-based rental assistance for 90 permanent supportive housing apartments, which combines affordable housing with onsite or nearby support services such as workforce and employment services, independent living skills training, and counseling.

Statistics on rental assistance are even more striking. At the end of 2024, CRHA was serving 1,480 households through the Housing Choice Voucher (HCV) program, and an additional 243 households through specialized tenant-based rental assistance programs. The HCV operates

by providing direct payments to landlords for the difference between the market rent of a unit and 30% of a voucher holder’s income. Vouchers can be used anywhere that meets safety and sanitary conditions. The need for this program vastly outstrips the available assistance. The waitlist for this program in 2024 was 9,229 households. The waitlist has not been opened since January 2020, except for one special circumstance for those experiencing homelessness.

Two of the groups with the greatest need are those who are renting and making less than 50% of AMI that cannot find affordable housing without rental assistance, and those making between 50%-80% of AMI. These groups fall into the “Affordable Housing Rental Gap.” For those making less than 50% of AMI, there is simply not enough rental assistance for all who need it.

On the other hand, households earning 50%-80% of AMI make too much money to be eligible for public housing, HCVs, or other financial subsidies, yet they continue to struggle to find affordable housing because of high market rates. This group is often severely cost burdened. They could afford housing produced by Low Income Housing Tax Credit (LIHTC) developments, but currently these are extremely limited. The City must support more LIHTC projects in Chesapeake in order to make sure our residents’ needs are met.

Ultimately, creating more attainable housing for Chesapeake residents will likely require more support from the state and federal governments, in the form of rental assistance and incentives for local developments to

support affordable housing projects like LIHTC.

Affordability is not just an issue of income – there are those with relatively high incomes still struggling to find appropriate housing because the stock is not adequate.

According to HUD's Comprehensive Housing Affordability Strategy (CHAS) data, nearly 3,500 households making above AMI are cost burdened or severely cost burdened.

Several constraints reduce the availability of affordable housing, including high land and construction costs and high interest rates. While the City cannot directly impact these particular barriers, other factors can be managed.

Zoning Ordinance

Current zoning regulations constrain density (read more about Chesapeake 2045's position on density in the Growth Management and Rural Areas chapter) and limit the housing types allowed in each zoning district. While affordable housing can be built anywhere in the City, restrictions on multifamily, duplexes and other housing types that may be more affordable effectively create the same results (see the New Housing section for more).

Manufactured Homes

Manufactured homes, single-family homes built in a factory and transportable in one or more sections and installed on a permanent

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chassis, are another housing type that is challenging to build in the City, despite the Commonwealth's recognition that it can be an affordable housing option and should be supported. Manufactured housing has seen significant advances. Many people think of the mobile homes of the 1960s which often had poor construction quality and safety concerns. Today, manufactured homes have improved design and aesthetics, energy efficient systems, and structural integrity that can surpass that of traditional homes.

Development Review Process

Other notable concerns include a lack of incentives for building affordable housing

and a development approval process that may include significant uncertainty for affordable projects – these both decrease developer interest in such projects. Part of that uncertainty stems from neighborhood opposition to new development, particularly for certain types of housing.

Here, the City will continue to promote education around housing attainment, and the facts and benefits of affordable housing. Residents need to understand what affordable housing is and is not and who the people are who need it. They are our firefighters and preschool teachers. They are the college graduates and vocational workers who are just starting out, that our economy needs so that

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it can flourish. They are seniors who are on a fixed income, and are looking to downsize. They are people moving along the housing continuum, just like all of us.

Create Opportunity For Affordable Units

The City can encourage affordable housing by working with developers to proffer affordable units; more work needs to be done on incentives that can support this. Additionally, the City can be a leader in providing affordable housing by evaluating City-owned surplus land that may be ideal for such housing projects and proactively rezone it and make it available for developers. Similarly, the City can work with private landowners to determine if there is private land available for affordable housing projects and help them rezone it to the appropriate zoning district to remove one barrier to development.

Innovative Solutions

Affordable housing requires changing the way we currently operate in the residential industry. There are many innovative methods today that help maintain the affordability of units and help homeowners build wealth. For example, Community Land Trusts (CLT) allow homeowners to own a home while the CLT owns the land it sits on. The fact that a homeowner is only paying for the house (and not the land) makes it more affordable. Additionally, the CLT holds it in perpetuity, so when the homeowner sells, they agree to sell the home at a restricted price to keep it affordable. Other tools are financial, such as creating revolving loans and accelerator

housing funds. The City should begin exploring these methods, starting with those that have been successful in other localities.

Transient Leasing

Transient leasing, such as with Airbnb, can impact the overall availability of housing stock for permanent residents. In 2023, Chesapeake had approximately 207 units available for transient leasing. They were evenly dispersed across the City. Currently, the City does not allow for short-term rentals where the length of stay is fewer than 30 days other than permitted bed and breakfast establishments. This restriction is generally enforced on a complaint basis due to staffing and logistics required for enforcement.

Partners

All of this work does not happen without partners. Housing is a unique resource that is touched by all levels of government; private

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developers, realtors, financing agencies; and non-profit organizations. Chesapeake Thrives is a leading partnership of individuals from both public and private sectors that connects residents to resources related to health, housing, poverty, workforce development, and more. The City must continue to encourage and bring these partners together to solve one of today’s most pervasive challenges.

The City can support affordable housing in all parts of the Chesapeake, particularly to make sure that low-income populations are not concentrated in one place, but rather dispersed across the City.

HOU 25: Encourage the construction of affordable housing throughout the City that is consistent with Smart Growth principles and compatible with the surrounding area.

HOU 26: Allow affordable housing to be built across the entirety of the City, with a special focus on those areas in close proximity to transportation, education, employment, and other services. Affordable housing in the Suburban and Urban Overlay may include a variety of housing types with additional density in key areas and a focus on connections to transit hubs, while accessory dwelling units are the most likely affordable housing type in the Rural Overlay.

HOU 27: The City will establish and implement initiatives to educate the public, realtors, the housing industry, the financial community and others on the facts and benefits of affordable housing.

Housing

HOU 28: New manufactured housing should be considered as an option for affordable housing. The City shall support new manufactured housing where appropriate. When possible, existing manufactured housing communities should be enhanced and maintained.

HOU 29: Support the development of housing funded through the Low-Income Housing Tax Credit (LIHTC) Program, which provides long-term, quality, affordable housing.

HOU 30: Encourage developers of residential and mixed-use projects to provide affordable housing through reductions in cash proffer amounts and other incentives.

HOU 31: Evaluate City-owned surplus land for any that may be appropriate for affordable housing development.

HOU 32: Support existing programs and explore additional innovative avenues for funding affordable housing, including housing accelerator funds and revolving loans.

HOU 33: Explore the use of Community Land Trusts or similar mechanisms to ensure that newly-created for-sale and rental affordable housing units developed with City financial assistance remain affordable for more than 20 years.

HOU 34: Identify community partners to assist in the development of affordable housing (non-profits, faith-based, local government, real estate professionals, builders, laborers, financial institutions, state and federal agencies, etc.).

HOU 35: Support the work of Chesapeake Thrives in strengthening linkages and coordination among public and nonprofit agencies that provide affordable housing and supportive services.

HOU 36: Continue to enforce the prohibition of short-term rentals to reduce housing being diverted to this purpose.

HOU 37: Ensure housing options are dispersed so that households of all income levels have the opportunity to reside anywhere within the City.

Senior Housing

The average age in Chesapeake is 39.0 years old; this is slightly higher than the Hampton Roads average of 37.9. As across the United States, the population is aging (the average age in Chesapeake in 2010 was only 36.9). Residents 55 and over currently make up 29.3% of Chesapeake’s population. In 2045, this group is projected to account for just over a third of the City’s population. The 75-84 and 85+ age brackets in particular are expected to see large increases in population, with the number of residents 75-84 increasing 90.4% and the number of residents 85+ increasing 231.9% between 2022 and 2045.

Shifting Housing Needs

This will significantly shift the housing needs of the City, with an increase in the need for supportive housing, smaller housing with reduced maintenance requirements, and more accessible features such as step-free entries, wider doorways, and single-level houses (known as universal design features). There will also be a need for more long-term care facilities, skilled nursing facilities, and other housing and medical solutions for seniors and those with disabilities. This is an area where there continue to be innovations; unique housing, such as homesharing, where unrelated individuals share a home to reduce housing costs and provide benefits like companionship, is one example. The City should encourage the continual evolution of housing.

Housing Repair Programs

Property, and specifically one’s house, is often the largest investment a resident will have

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in their life. It may be part their of retirement plan, and a key to living comfortably after they stop working. One of the biggest concerns for property owners is being able to maintain a home in a safe and clean condition, both for property value and financial reasons as well as comfortable everyday living. Properties that have been owned by the same household for many years may have fewer upgrades in terms of energy efficiency, modern building amenities, or universal design features that help residents age in place.

Home maintenance becomes increasingly challenging as homeowners age. This is partly due to the physical nature of maintenance. It is also in part due to the cost of replacing and maintaining appliances, roofs, HVAC systems, etc. Data shows that senior households (those with one or more persons age 62 or older) are disproportionately cost burdened compared to other households.

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Between 2015-2019, 16,390 senior-owner households made below the Area Median Income (AMI), and nearly a quarter of them were severely cost burdened (spending 50% of more on housing). The City can support these property owners by establishing and funding housing programs specifically geared towards assisting senior owners with repairing, modernizing, and improving energy efficiency in their homes. This helps keep the house current, maintain its value, and remove barriers to aging in place so residents can stay there longer.

Housing Variety

Outside of supporting individual homes and owners, the City must think about the location of senior housing relative to needed services, amenities, and community. Housing built in proximity to services reduces the reliance on vehicles or caregivers, and allows seniors to remain independent for longer. Perhaps more importantly, building housing that is suitable for seniors among other homes is critical to creating diverse neighborhoods that allow residents to age in place. Most residents, as they age out of their homes, would prefer to remain close to the community network they have built over time.

When neighborhoods don’t include housing appropriate for seniors, residents may have to move far away and lose the valuable connections that support their mental health and sense of community.

HOU 38: Increase the amount of available housing that is designed to address the needs of seniors.

HOU 39: Encourage the production of a range of housing types for seniors and people with disabilities, such as residential care facilities, independent living, long-term care facilities, and skilled nursing facilities.

HOU 40: Provide and fund housing rehabilitation programs that assist senior homeowners to repair, modernize, and improve the energy efficiency of their homes, and remove barriers to aging in place.

HOU 41: Support housing opportunities for seniors and those with disabilities that include universal design features and are in proximity to important services and facilities, which allow residents to remain in their chosen housing into their senior years.

HOU 42: Support a mix of housing types, including accessory dwelling units, duplexes, townhomes, and single-story detached homes, in neighborhoods to facilitate residents aging in place.

Homelessness and Displacement

While Chesapeake is regularly recognized for its high median income and excellent quality of life, there are residents living in extreme opposite circumstances. Every year in the same 24-hour period, a thorough count is undertaken to understand the scope of those living in emergency shelters, transitional housing, and on the streets. It’s important

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to note that this number cannot account for those living with friends and family in congested housing conditions, or those on the verge of homelessness.

The number of homeless people in the City fluctuates every year, though has not substantially increased since 2021, when circumstances began to stabilize from Covid-19. In 2024, there were 162 known homeless persons, 43 of whom were unsheltered. 30 individuals and 2 families were categorized as chronically homeless, meaning they have been homeless with a disabling condition for at least a year, or had four episodes of homelessness in three years (for families, at least one adult member must have a disabling condition).

Address Root Causes

The most important thing is to address the root causes of homelessness by increasing resources and access to things that are important for low-income residents such as transportation, childcare, and workforce development. Creating the circumstances for individuals to afford housing is key. Many of these are addressed in Chesapeake 2045, including affordable housing, access to transportation, and workforce training.

Supportive Housing

It is important to recognize that some percentage of residents need supportive housing, which provides both affordable housing and onsite or nearby services (see more in the Affordable Housing section) and those residents may need it for a long time. The City should support this housing need, as well as emergency housing and other permanent housing. When selecting sites, the City must also consider other needs residents may have, such as proximity to public transportation or City services.

Evaluate the Need

To ensure residents are being served, CRHA will stay in touch with organizations such as CIBH, Human Services, and other non-profit entities to continually evaluate the need for housing for homeless individuals and families. Although federal and state funding exists for supportive and emergency housing, the City may also need to support such projects.

Displacement

Finally, the City and developers must acknowledge that displacement can occur due to redevelopment, which may directly or indirectly lead to homelessness or insufficient housing. Redevelopment typically occurs of low-performing or low-revenue-generating properties, which may mean affordable housing. As redevelopment occurs, developers should work closely with residents to find alternative housing arrangements, either within the new development or elsewhere.

HOU 43: Address the root causes of homelessness resulting from re-entry, deinstitutionalization, and poverty by supporting workforce training, counseling, access to transportation and affordable childcare, and other strategies to help low-income residents reach self-sufficiency and afford housing.

HOU 44: Through Chesapeake Integrated Behavior Healthcare and similar agencies, increase awareness of the housing needs of those requiring community-based settings. Additional consideration should be given to service needs such as proximity to public transportation.

HOU 45: Continue to evaluate the need for and increase the supply of emergency housing, permanent housing, and permanent supportive housing for homeless individuals and families.

HOU 46: Encourage efforts to support residents facing displacement due to redevelopment initiatives in finding appropriate alternative housing arrangements.

Housing