Developers, residents grapple with Ann Arbor's plan to manage growth

Credit: Amy Barczy/Crain’s Detroit Business
Ann Arbor is dotted with residential projects underway, including a 2,300-bed residential complex for the University of Michigan.

Ann Arbor’s popularity as a place to live, work, play and attend college has some downsides: a shortage of housing and a reputation as being unaffordable for many people.

And some developers say red tape and high costs hinder projects in the city.

City officials are working on addressing some concerns over growth issues with a proposed comprehensive land use plan, which is meant to guide Ann Arbor’s development in the coming decades.

The Comprehensive Plan aims to alleviate the housing issue by simplifying the city’s zoning, increasing density and eventually lowering housing costs by increasing supply while allowing more mixed uses in certain areas.

Under the plan, Ann Arbor’s land would be split into three categories, excluding parks and open space, public land and land owned by the University of Michigan:

  • The Hub District would be the densest, allowing for mixed use including residential and commercial, and expand opportunities for residents to live and work in or near downtown.
  • The Residential District would be the least dense, allowing for multifamily housing up to three stories tall in addition to single-family housing.
  • The Transition District would have a medium level of density and allow for a mix of uses.

Within the three categories, City Council would create zoning more uniquely tailored to the uses within each category.

It’s “an opportunity to start with a fresh zoning ordinance,” said Ann Arbor Mayor Christopher Taylor, who described the city’s current zoning as complex and inefficient.

“We’re going to make sure that things are done right, but we also don’t want it to be unduly burdensome to figure out what you can build in Ann Arbor,” Taylor told Crain’s.

The plan has not been without controversy. A website created by Ann Arbor Neighborhood Network called A2 Pause the Plan says the proposed plan is based on an unrealistically large number of people projected to move to Ann Arbor, doesn’t account for increased infrastructure needs and costs resulting from new construction and didn’t have adequate community engagement during its drafting process. A petition on the website calling for the suspension of the plan had more than 3,000 signatures as of Thursday afternoon.

Others support the plan, saying it addresses necessary change.

James Nichols, executive officer of the Washtenaw Area Apartment Association, an organization serving people and companies in the rental housing industry, said an increase in density is needed in the Ann Arbor housing market.

“We all know that more development will help lower the cost of rent in the city by not only just the demand and supply ratio, but also increasing the competitiveness of the market,” Nichols told Crain’s. “We believe that a more competitive market compels our property professionals to improve the quality of housing, improve the amenities that are offered, and drives down prices.”

Credit: Abigail VanderMolen/Crain’s Detroit Business
Ed Shaffran, president of Ann Arbor real estate companies Shaffran Companies Ltd. and E.A.S. Realty Inc., in front of a mixed-use building he owns at 306 S. Main St. in Ann Arbor.

Ed Shaffran, president of Ann Arbor-based real estate company Shaffran Companies Ltd., is not as supportive of the plan. 

“It just doesn’t seem to be well-intended,” he told Crain’s. He’s skeptical that the plan would actually make housing more affordable. “How does zoning make it affordable?” he asked.

Shaffran doesn’t see there being high demand for housing in the newer density that would be allowed under the plan. 

“Think of the cost,” he said, citing Ann Arbor’s comparatively high property taxes in addition to the price of the home itself. “It comes down to what people can afford.”

Ann Arbor’s appeal and cost

The median value of a home in Ann Arbor is $526,671 according to Zillow, putting it $158,960 above the national median of $367,711. Ann Arbor’s median value is up from $397,414 in January 2020 — a 32.5% increase. Rent averages $2,379 per month in the city — $355 above the national average — according to Zillow, a 36.8% increase from $1,739 in January 2020.

By comparison, houses in East Lansing, home to Michigan State University, have an estimated median value of $308,990, up 45% from $213,058 in January 2020. Rent averages $1,759 per month. Rental data on East Lansing was not available going back five years.

Despite recent residential construction that has added hundreds of units, demand remains high in Ann Arbor. People are increasingly drawn to the city that frequently ranks among the best places in America to live for its urban and rural lifestyles, university town advantages, culture, events, sports, outdoor recreation, school system and health care. Its fast-growing startup scene and proximity to Detroit are also draws, according to U.S. News and World Report.

Students also continue to swell the population of Ann Arbor. UM enrollment surpassed Michigan State University to become the largest university in the state in 2023 and it reported record enrollment of 52,855 in fall 2024. But UM can only accommodate about 11,000 undergrads and grad students in university housing in a given year, according to the university. So the majority of students live in off-campus apartments and rental houses after their first year of classes, competing with other residents in the city’s rental market.

Ann Arbor’s situation has raised concerns that it is becoming unaffordable for people like those who work in its schools, public safety, restaurants and stores. With a population of nearly 120,000 people, just 17,255 live and work in Ann Arbor, according to Census Longitudinal Employer-Household Dynamics data from 2021 — the most recent available.

Credit: Abigail VanderMolen/Crain’s Detroit Business
Doug Selby stands in front of a housing complex he’s developing at 530 N. Division St. in Ann Arbor.

Development process and costs

Doug Selby, founder of Volta Homes, a small-scale all-electric net-zero energy developer, and Meadowlark Design + Build, which remodels homes, views the plan as a positive change. He said there are a multitude of barriers to building new developments in Ann Arbor — especially smaller multifamily housing — and the proposed Comprehensive Plan is working to eliminate some of those.

“Things like, you know, neighborhood cafes and shops and little pocket neighborhoods where there’s, you know, smaller, more dense housing — those, to me, give our neighborhoods a lot of charm and character,” Selby said. “Those are the things that people love most about living in Ann Arbor, is those quaint little neighborhood gems. And ironically, they’ve been pretty much illegal to build since the late ‘50s.”

Many types of development in Ann Arbor — including any construction resulting in five or more units of housing — go through the city’s site plan review process. This includes a four-step process to submit a site plan to the city, and could require approval at a city Planning Commission meeting and two City Council meetings, depending on the type of development. There is a Plan Review Fee that ranges from $1,400 to $3,400 due when a plan is submitted.

Still, even under the proposed plan, Selby said too many barriers would remain for him to realistically do much more development in the city.

“Unless there’s a lot of changes in sort of how expensive it is to do the planning and things like that, I would build one- and two-unit homes, but I can’t see building anything beyond that in the current environment,” Selby said. “It’s too expensive to make it work.”

Until 2022, developments larger than duplexes had to go through the city’s site plan review process, but City Council amended the Unified Development Code so that only developments larger than quadplexes are required to go through those steps. The same 2022 legislation updated the planning review process so “by rights” developments that met existing zoning requirements did not need to go before City Council, shortening the approval process by about 90 days, MLive reported.

For a four- to six-unit building, Selby estimated that soft costs due to city fees, required in-depth planning services and engineering requirements are $250,000-$350,000. The developer would likely be required to replace utilities underneath the street, something that could cost $200,000-$500,000, according to Selby, and fire-related code requirements add another $150,000-$250,000. Additionally, taxes would be $150,000-$250,000 annually, according to Selby, and the cost of the land is high. 

Developments that exceed the allowed density in their zone must either include affordable units or pay into the city’s affordable housing fund, an expense Selby estimated to be around $150,000-$250,000. Ann Arbor Planning Manager Brett Lenart told Crain’s that the option is typically only used by large developments.

Selby cited a fourplex he’s working on as an example of the kinds of expenses associated with building small in Ann Arbor. He’d planned an eco-friendly rental building, but it took him six years to get the building plan fully approved by the city. In that time, taxes on the property nearly doubled — he said he’d been told by the city they would be high five figures, but ended up being around $150,000 — making it no longer profitable as a rental. As a result, he now needs to sell the building instead of keeping it as a rental.

Selby declined to share the total amount he invested in the project. 

“It’s not possible to build a fourplex in Ann Arbor for rent, at least not anywhere close to the urban core,” Selby said.

Eliminating those barriers is part of the responsibility of the city’s new economic development director, hired to lead the Office of Economic Development, Ann Arbor City Councilmember Jen Eyer told Crain’s. 

One of these barriers, according to Joe Giant, the economic development director, is that Ann Arbor tends to require more extensive plans from developers before they go before the Planning Commission when other cities don’t require that level of detail until after the project is approved. “What that means is a developer or a builder is going to have to spend a lot more money sooner in the process, when they aren’t really sure that their project is going to be approved or not,” Giant said.

The economic development office was established as part of a package of four bills aimed at simplifying the city’s development process. Other bills in the package directed the city administrator to speed up and eliminate some steps from the site plan review process, incentivize eco-friendly developments like Selby’s and prevent tax-exempt entities — like UM — from cutting into the city’s tax base.

Getting new developments approved in Ann Arbor is a major barrier to increasing the city’s housing supply, according to Nichols.

“We have a lot of student housing developers on a nationwide scale that would love to break ground in Ann Arbor, but with the amount of red tape, the amount of legislation, and obviously the increased property taxes and everything that goes on from the city itself, it’s de-incentivized a lot of developers from moving forward,” Nichols said.

Still, in recent years, a handful of high-rises aimed at student renters and others have gone up in the city, including Vic Village South by Bloomfield Hills-based Hughes Development, which opened in August, and The Legacy at Ann Arbor downtown, a Landmark Properties project slated to open in the fall. Additionally, UM is working on constructing new student dorms, which should ease some of the competition for housing in the city. A 2,300-bed residential complex is slated to finish its first phase of construction in summer 2026.

Another 330 rental units are expected to come online in 2028 in a new mixed-income, high-rise apartment tower in downtown Ann Arbor that will be co-developed by Chicago-based Related Midwest, a division of billionaire Stephen Ross’ real estate company Related Cos., with the Ann Arbor Housing Commission.

Credit: Abigail VanderMolen/Crain’s Detroit Business
Work continues on 330 Detroit Street, a five-story, 15-unit luxury condominium development in the Kerrytown District of Ann Arbor.

How much is too much?

Ann Arbor resident Michael Watts, who is CEO of Ann Arbor-based ad agency Hook and one of the people behind the A2 Pause the Plan website, worries that expensive high-rises will be the bulk of the new housing to come out of the plan, making it counterproductive for achieving affordability.

“In a perfect world, if there’s high demand, you know, creating vast amounts of supply will drive down prices, but that’s not the real world here,” Watts told Crain’s. “There’s a high demand for affordable housing, and some demand for market-rate housing. But thinking that building a bunch of luxury condos is going to solve your affordable housing problem? I don’t think that’s going to work.”

The proposed Comprehensive Plan states an objective of increasing housing supply by 1,200-1,800 homes — including single-family houses and units within apartment buildings — per year over the next 25 years “to maintain healthy balance between supply and demand in the housing market.” This would amount to a total of 30,000-45,000 homes. Critics of the plan point to a SEMCOG population forecast for Ann Arbor, which predicts an increase from 123,851 to 135,800 residents from 2020 to 2050 — an increase of just 11,949 people. 

Eyer said the plan’s projected housing increases are meant to communicate the city’s capacity for new housing — an indication of how many new housing units could be developed if the city adopts the changes in the comprehensive plan.

The plan is undergoing edits, and a second draft is expected to be available for public review from August to October, with City Council voting on whether to adopt the plan in November. 

The plan provides a rough guide, but City Council would be responsible for implementing it by adopting new zoning, something Taylor said would be done in 2026 and 2027, assuming there are no delays.

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