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Condominiumization of Lodges
MEMORANDUM
TO: Aspen Planning and Zoning Commission
FROM: Richard Grice, Planning Office
RE: Lodge Condominiumization/Lodge Preservation
DATE: February 28, 1980�
Many of Aspen's nonconforming lodges are no longer viable economic operations.
The reasons most often cited are:
(1)
(2)
(3)
Limitations on reconstruction and/or renovation imposed by
nonconforming status, and
Refinancing di'ficulties arising from nonconforming status, anJ
The economics of scale are not available to the small operations.
The following are possible solutions to the above problem:
(1) (a) Amend the nonconforming section of the Code so as to allow
for the reconstruction, renovation, or modification of
nonconforming lodges provided all new construction meets
the area and bulk requirements of the underlying zone district
and, provided that no increase in the square footage or the
number of lodge units occurs. Such new construction could
be accomplished simply by meeting the requirements of the
Uniform Building Code unless the proposal involves construc-
tion within a Mountain Viewplane or in an Historic District.
In those cases, the Planning and Zoning Commission and the
HPC would become involved respectively. These amendments
would result in a significant simplification of the Code
in that most lodges would be able to renovate or reconstruct
simply by applying for a building permit. In addition, since
these lodges would remain nonconforming uses, the question
of adjacent property owners being allowed to create new
lodges is eliminated.
(b) Create a new zoning category to be called the Lodge Preser-
vation (LP) zone. The LP zone would be intended as a means
of encouraging the renovation of and preservation of the
unique mix of existiing lodges as to scale, character, size,
type, location, quality, services, amenities, ambience and
price. The zone would be applicable to those lodges which
were constructed outside the lodge zones prior to the adop-
tion of the 1973 Master Plan, i.e., all lodges which are
nonconforming as the use. In order to legally justify the
new zone category and the elimination of nonconforming
status without allowing adjacent properties to build new
lodges, we would also need to adopt a Lodge Preservation
PLAN to act as a guide for the administration of the zone.
The Plan could include criteria for evaluating the merits
of any expansion proposal. However, we do not feel that
expansion should be allowed for reasons covered in detail
later in this memo. Finally, as the 1980 Planning Office
budget did not include the staff time which would be neces-
sary for reviewing proposals under the newly created plan,
some other budgeted task(s) would have to be eliminated.
(2) Lodges experience refinancing difficulties with or without
nonconforming status due to the fact that investors view
lodges as a high risk. Even without restrictions imposed
by nonconforming status, the marketplace will allocate
where investors place their money and each lodge must stand
on its own merits. In the capital -short money market which
exists today in the United States, funds for refinancing will
continue to be difficult to acquire even without restrictions
EST
Memo to Aspen P & Z
Re: Lodges
February 28, 1980
Page Three
1. In order to promote full utilization of existing residential and
lodge facilities, amend the nonconforming section of the Code by
the creation of a new section, 24-12.9 "Residential Preservation
Clause":
"All single-family, duplex -family, multi -family, lodges and
hotel residential uses that were lawfully established and
continually so -used thereafter are nonconforming uses but
are considered to be allowed uses and are not subject to the
provisions of Section 24-12.4 and 24-12.5; provided, however,
that all new construction, renovation, reconstruction, or
modification must meet the area and bulk requirements of the
underlying zone district, and, provided that no increase in
the square footage or number of units shall be allowed."
2. In order to clarify that it is not our intention to prohibit the
condominiumization of developed nonconforming uses, amend Section
20-9(c) to read: 1 ,.
"No subdivision of land shall be approved which is inconsistent
with the provision of any zoning ordinance or other ordinance
of the City of Aspen or law or regulations of the State of
Colorado."
3. Amend Section 20-22, the condominiumization section, so as to allow
the condominiumization of hotels and lodges in accordance with the
Lodge Association's proposal provided that the proposal continues
to guarantee continued short-term use.
4. Amend the definition of subdivision, Section 20-3(s)(2) so as to
clarify that review under subdivision regulations will not be
required for the renovation or reconstruction of nonconforming
residential uses. That section should be amended to read as follows:
"A tract of land including land to be used for condominiums,
apartments or any other multiple -dwelling units, or for time
sharing dwelling units; or"
Section 20-3(s)(2) currently reads as follows:
"A tract of land including land to be used for condominiums,
apartments or any other multiple -dwelling units, or for time
sharing dwelling units, unless the improvements with the same
density has previously complied with the requirements of this
chapter; or... 11
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�u✓PROPOSED ORDINANCE
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A. Requirements. Any applicant seeking condominiumiza-
tion of an existing lodge (for the purpose of this section, a
lodge is defined as a building containing three (3) or more
units intended for temporary occupancy of guests and run in such
I'manner prior to January 1, 1979), in addition to other require-
ments set forth in Chapter 20 of the Aspen City Code (the Aspen,
Colorado, subdivision regulations), shall comply with the follow-
ing requirements:
1. The condominium units created shall remain in
the short-term rental market to be used as temporary accommoda-
tions available to the general public. The following shall con-
stitute prima facie evidence that the applicant has complied
with this paragraph:
a. A condominium declaration for the condo-
minium sought to be created shall be filed in the records of the
clerk and recorder of Pitkin County, Colorado, which shall pro-
Ilvide, interalia:
(1) An owner's personal use of his unit
shall be restricted to fourteen (14) days or less during the
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seasonal period of December through p-r 1. This seasonal
period is hereinafter referred to as "high season." "Owner's
personal use" shall be defined as owner occupancy of a unit or
nonpaying guest of the owner or taking the unit off the rental
market during the seasonal periods referred to herein for any
reason other than necessary repairs which cannot be postponed or
which make the unit unrentable. Occupancy of a unit by a lodge
manager or staff employed by the lodge, however, shall not be
restricted by this section.
(2) A violation of the owner's personal
use restriction by a unit owner shall subject the owner to a
daily assessment of three times the daily rental rate for the
unit, at the time of the violation, which assessment, when paid,
shall be deposited in the general funds of the condominium
association for use in upgrading and repairing the common elements
of the condominium.
(3) All sums assessed against an owner
for violation of the owner's personal use restriction and unpaid
shall constitute a lien for the benefit of the condominium
association on that owner's unit, which lien shall be evidenced
by written notice placed of record in the office of the clerk
and recorder of Pitkin County, Colorado, and may be enforced by
foreclosure on an owner's condominium unit by the association in
like manner as a mortgage or deed of trust on real property.
(4) A violation of the owner's personal
use restriction shall be enforceable by both the City of Aspen
and the condominium association.
2. The new condominium units shall provide on -
site management and maintenance and other tourist accommodation
services during high season consistent in quality and quantity
to those provided during the high season immediately prior to
the time of application when the property was operated as a
lodge. If the lodge property sought to be condominiumized had
provided on -site management, t e new co dominium shall provide
�r contract for on -site management from 8:00 a.m. to 8:00 p.m.
seven (7) days a week, on -call services twenty-four (24) hours a
day, maintenance of the grounds, common elements and emergency
unit repairs and a continuation of the lodging amenities and
host -guest relationship consistent with that previously provided
by the lodge.
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3. The condominium units shall rema' a ailable
to the general tourist market. This condition maybe t by
inclusion of the units of the condominium in a local relservation
system for the rental of lodge units in the City of Aspon.
4. The common areas of the lodge shall r�main
common areas and be maintained in a manner consistent with its
previous lodge character. Any changes, alterations or renovations
made to common areas shall not diminish the size or quality of
the common areas.
5. The lodge shall be physically upgraded as a
result of the condominiumization either by applicant's fulfilling
the requirements set forth in subparagraphs a and b, infra, or
in the alternative by applicant's compliance with subparagraph c,
infra, as follows:
a. An amount equal to twenty percen (20o)
of the assessed value of the property is applied to the pgrading
of the lodge facility pursuant to plans submitted to and approved
by the City within six (6) months of condominiumization pproval
and the upgrading is completed within nine (9) months after the
building permit for such upgrading is issued.
Tw housand, fi e hundred dollar
fm�• �Zu f 6 ,��� ,�
RVI
($2,500.00) per to ging unit s spent on he upgr ding o each
rental unit pursuant to plans submitted to and approved y the
City within six (6) months of condominiumization approva and
the upgrading is completed within nine (9) months after
'building permit for
such upgrading is issued.
6j � 46XZ ,mot. The applic nt demonstrates by cle
convincing evidence to the City 1 that funds previ
expended by the applicant have upgraded the lodge to a h
enough quality so as to make further upgrading unnecessa
condition to condominiumization and that the upgrading d
previous to the condominiumization will allow the condom
lodge to continue to accommodate its clientele in a mann
r and
usly
gh
y as a
e
iumized
AA
consistent with or better n qu lity than the accommoda ion
(provided previous to c do miniu-Eiization. Due considera ion
shall be.given by City Council to the fact that the lod es of
Aspen attract clientele from diverse economic sectors, certain
lodges catering to certain sectors, and the intent herein is not
to create a uniformity in lodge character and roles but instead
Ito upgrade the physical appearance and facilities that each
lodge provides.
B. Applicability. All conditions set forth wi hin this
ordinance shall be made binding on the applicant, the ap licant's
successors, heirs, personal representatives and assigns nd
shall govern the property which is the subject of the ap lication
for the life of the survivor of the present City Council of
Aspen plus twenty-one (21) years. A condominiumization of a
lodge pursuant to this section shall be modified only by the
written agreement of the City Council and the owner or owners of
the condominiumized lodge property.
C. Procedure. Condominiumization of an existing lodge
shall be accomplished pursuant to the exception or exemption
process rather than through the full subdivi
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MEMORANDUM
TO: Aspen City Council
FROM: Richard Grice, Planning Office
RE: Report on the Lodge Condominiumization Ordinance
DATE: January 21, 1980
The Planning Office, the Lodge Association and Gideon Kaufman, as well
as several members of the City Council and the Planning and Zoning Com-
mission have been working on the Lodge Condominiumization Ordinance.
The final product is not completed; however, we're getting close.
In its present form, the ordinance addresses the three major concerns
identified by the Planning & Zoning Commission and City Council: the
need to physically upgrade, long-term management, and continuation of
short-term availability. There seems to be some continued disagreement
regarding how much upgrading and employee housing should be required as
a condition of condominiumization. Gideon Kaufman is putting what hope-
fully will be the final draft together at this time. We hope to be able
to present to you a copy of the latest draft on Monday.
In any case, we need for you to extend the moratorium long enough to
allow a public hearing before Planning & Zoning, as well as first and
second readings before City Council - roughly 75 days.
(The code requires 15 days notice prior to the Planning & Zoning public
hearing; agenda deadlines dictate that there will be 20-21 days between
the Planning & Zoning hearing and the first reading by City Council; and
finally, additional time will be lost in scheduling the second reading
before City Council, as it is a public hearing with 30 days notice.)
Note: (3:00 P.M. Tuesday) Gideon has just delivered the latest Draft
of the Condominiumization Ordinance to the Planning Office.
We have not had time to review the draft, but are including it
in your packet so that you will have time to review it prior
to the meeting on Monday.
D R A F T
December 18, 1979
TO: Planning cc fice, City Attorney ant City '-tanager
ASoon P it
Aspen City Council
ALA Executive Committee
ACR Board and Betty
FROV: Al Blo-quilt, ALA Task Force on iron -conformance
SUBJECT: Proposed New Lodge Overlay ?une --- Plus.
This report deals with the problem of NON-CO\FO11'0IING LODGING. Karen S^it:i
obtained and suggested that the ALA consider t`:e Phconix "Special Conser•.atic:.
District" ordinance for a model. -. e attached craft of a LODGE CVERLAY :-.';h
::.ilizes t .e Pheonix approach. The ►hconix ordinance included a nei?'.borl:cod
self -planning feature.
For Aspen the new zoning provision is called an "Overlay" zone because it
leaves the und--rlYing districts and re-niations applicable to all. uses except
"exist :: - lodgin-y", to xhic% the ever la a -)-plies. It creates lodging as a
snccial "class" of ')usincss use and makes Cxisti-7 lodging within the overlay
zone `::lly le^a' and enable:'. and encouraged to up -grade.
h
A-1;'.itional research done by the ALA suq,,ests that ::ore than just a Lodge
Overlay lone is needed. If the following objectives are to be achieved:
1. Le alize, without reservation, lodging in two
mixed use neighborhoods where such lodging is
now nor. -conforming.
�. Allow limited expansion and unlimited ungrading
of existing lodges without automatically enablinn
*l:cr properties, to be used for totally new
i fit, .
;. P-COSe]'Je the n:xe1 ;:se character an.: neijibor-
:•f -")th the 1_11iauc•w ';:•.; �t.^.;� .^a
lili) ilolc Par:, CSi::^.C1.1_-1GJ�i•�^ i1C�^^...iT'
;. Iis:1 to igin^ as the business of �rovidin^
short azczmadations .l_7:..
r -5itor .
J . .,►0: iGe rJ. 1:Ceas:•'^_ to the e:1d i::.^.t
the lo,'"_ ij.:C:1t:1 and sales tax fun tions
are conplIcte, accurate, and cur7cnt.
o. Pro: _de in opI—or tnnity for t:1e S:...�c::
�Jr :... e Park n ' lan for
�c
..:e.. _:::1.. _ 'aa: 0"'CMCn JOt`: ..S t: nl
an,! as 1cI!7:. C' ::COGS
-a.)l;sh A R as a quaSx . :�-
l.ortc:i cnti y frce from accusations of
it and a `rcc to
.is,tors with all Aspen lcdgimp re')res:^tc. .
10 acaleve the abovC objectives, the follol:in,7 arO^ ams 5.:0.:1 .' _Mn! i-
.... n t e d .
PP.OG't"! ON'!: -- h0(!GE 0!'ER►AY ":_
(a) Anend Purl,ose, Section 24-1.2, to include a ne::
n!irpose:
(i) To Protect and encourage the improvement
of lodc,,inp, as an !,pen business that offers
the visitor v bitty as to size, tv.)e, lug
at:ja, gL.ai . Y, servJ za.s, .,, caC t * c5, a.-alAeilco
a;.,i prize.
;unen;l Pefinitions, Section 24-3.1, to distin ,wish
JQt:tiCen "toi',giag" as the business of provid:a,-
S'lor t te:.1 rental ncco:'oclations :For the As^en visi-
t,,,-. �..l.::n .:IiC.. sal a tax is CO.ICCtCd and ...�_
«-
as :o::ti t3:�.i :.3:.ta: andC:Ji1... vCCL:i.^...^.C.y lot .Or
rc .tal : isitor use. i^ate :ae c:es-
hotel
t L, 1--
Ca jo. ...:....::..� anyany.i.er O..'t.�:14..,.�S .._.,.1 C. .-..-._Ons
s!:o::-te:- :erSi1S lU:a2-te:il 1S CO:1s2Sit::at t.:r:._.�.. ...
Cole.
^^:'Z:6' 1�;0 --_ 3USI: ESS LIC:FNSE
^•nend the Business License Ordinance, Section to
require all Lodging (short term rentals) to have a separate
Lodging business license for each prorerty (as identified by
the Assessor's Parcel `tether-H digit m'.e). Said License
shall not include a restaurant or other business - only the
lod!�ina function. Other businesses on the same parcel shall
have a separate license.
PROGRAM THREE --- SALES TAX ACCOiiVT I.UMBt-R
the sa:cs 'i :c urilinarize, Sc.tiva , to
require all :*iales Tax Account :;umlo'rs to correspond to
tll.' al)J'v ' bl:::_.1�'S3 ldc:,n-;e 'NiLm'aar ::,;.i A.;sc_:s�r's Par;el
as-afabove so tllat z:iic ..Jili.L; sales ta:.
C.'_')is .. aozouii Sisal. re.ri:ct :1cC:.: Lei; Lila short
on ..iC il�,,..:rtie$ s:i 1..Clitlfic.il.
"--'4 CFF CALES TAX
.....eTti! .:;c Sales Tax Cr:..- a ncC, :cis:: , LO
cnticns' CXC:7t for
........'. fib in? .... i :-'., j`.ate .^.^..
n
County to make .::Y ::::;• a'e^t to collect t::eir sales
,...::es from City ::n- to ao so mo :..:lly.
.. ♦.�� ♦ —�:.._"- .3 .�^..vS scasona_,,a.on_,.,
` ogress nec.!3 to mc�S :.^ ! .. _ ^.t@:, a�..�. in a ti.,ci
rcc._ .J w.7 -... .. .._..w ' • J.�..lVs tax cJi ♦VV.
most :cc: -rate r:flcc._:e --....--x nvai'
w.c :::r:�.,.-`:oat t' e cur. !! .:e✓e� :lile scmc v, crtics
":�`•t ......:thl;�, :y -_.::�:": '�... ,•, .."::i r7r some or
their .i,nli recet.-ts cc... :o:. .a s'..,_stics as :.1`c
as April or '!ay. '.15, *'je _.Tics tax I'^ccipts, as now re-
nortc', (to not accurately—2fleCt the extrcre Seasinal?r •
of the local econo- .
PROGRAM FIVE --- COMPUTER REPORTS
The Finance Office should rre;)are monthlv computer Print:).ts
lqn t!ir ho rt tern renta : - in the Ci t i' !'or )i o" t'!c
:onin;; rnrorcoment Officer, the pianners ail .i the lou'l;th
lll.lustr y /\� 1�, ALA, etc.) .
121C LSJnLi1l'• listing wou'L6 inJcnt1f. all i)al:.els ltsscJJJ,
i-� Uigit parcel identification nurniber) . The.�JI11nn, ii:J
OtSsiaess license number, the sales tax account number,
t:le SIC, the sales tax collczted for the pac-.''/Ot1S ::Jnt: ,
:nd any properties licensed but not pad:n- :his �;.olt:l.
iile muntal", a::alvtical st::.mary : oala report to.a: rcce:;);s,
number of participants and number of del=..:,::eac'_es....?:1-
Lonccod and SIC for t:le c::rrent r..onth, a:.1 L.lc =7-s __..
the same month a year •.,o, and last month.
sc-ni-l-nntlal six month report cn, lce-,ir- _..:�: s:ry ^`-750-
mance each winter and, each st:^^er wculd be eYw: , ••�
s ✓�Y.
cc al anal sis cC �tr_M�'A the Assessor's invnn `.�)rY of
'_cdRin,- with the City Finance Office inventory and the ACIR
inventory. Each .c;,ort :soul! also cc.;;.are st.: �ler ".!ay ,......
Octo'aer) and winter (ltiover..ber, thru ni::il) ;.erfor^a::ces,
measure :he off-season lows, idcntify lc ; tcrn trcn:'s, ct_.
Each .-.ould include a saccific report cn "? lo•' e ..ni.
quota and its relationship to market conditions and the
growth control objectives.
PR�ICMM SIX ___ A QUASI -PUBLIC CORPOnATE1CR
ACR is the third or fourth or more in a series of un-again
and down -again reservations services Purporting to represent
all or most lodging availability -- each intended as a con-
vellicnce to the Aspen visitor. It is time to s..tic on urge
;)ernanent entity, oils nationall advertised teleilnune nur:;%ar
a,l.l c„li c the financing directly i)roi:urtional to the ;-Iross
r.�: cults or cazh lod; -nc, ,:runcrt;: .
To assure tile i).'ri:anence and effe,:tivencss of ACR It SAJUI.�
i1J:•< oc creatcd, as a quasi 1'clMic! entity f1n:I:1Ced .>,: a fl:a.^..
percentage of (.Its• sales tax receipts iro.,, i.ud�IIl� �SilOr:
:c:l to :c)resent all lic ::SC:;
in t:lc ::_t• I_..._;s, and t:lose ,.tslde
the ^.ity limits contract for a fee.
Its c`iarter s°o,:.� ?_..._: to tao da_-..:c:.tor. Jf
aJa.�-^.lJi::t:', .. ^...^.._'Jaa�b:rt-Sc_! tc_:')::Oi.: ... :;..
. e to ea::l c:t:i:.;, reser:^.ticn:sts, ctc .
cn:: no :packa;-es, etc., ezzy. Its board of directors s::o:._..
_... _..�c ..:c ante Office, c
:cne - or ...^ ^^~ c'.e: tc.' fro:I each of the t:.ree _o
an
c!s res'_c':cnt of t!:� .: d t::e ipres:cc .`
M'I:Cc !:cTON
The al)c,ve six )rograms in.terelate to strcn;_then the Aspen
to 'Jn-, indrastr:.- by n.iving it new status in laic and some
imr.roved central and data services. They eliminate several
ciirrent hindrances to ludginp effectiveness and they give to
each owner considerable freedom to improve operations and
�uptirn,!e facilities. As such they comprise incentives to
i .tr•, ' , ;!'t)`'(• ;!-!vide o 'u the Vi Ito?,.
TO: Aspen City Council
FROM: Jim Reents, Housing
DATE: December 18, 1979
Director , )"
SUBJECT: Low, Moderate & Middle Income Housing Price Guidelines
When initially established in 1978 the housing price guidelines
were designed to reflect the current cost of construction. At
the time of initial adoption, the Council in their resolution also
adopted a method of updating these guidelines on an annual basis.
The formula that was proposed was an averaging of the Denver
regional house pricing index and the national housing index. For
1979 the average of these two indices was approximately 170
increase over the previous year.
The intent of the housing price guideline was to set a level at which
housing could be produced within the community. It was felt that
by having rental and sale price restrictions lower than the cost
of construction would be a disincentive rather than an incentive.
However, at the time the guidelines were developed, no consideration
was given to the fact that construction prices within the community
vary V..-4 ^
'_ ------._nt2: T''ith4 commPrnial- rnrP. which
already allows an1FAR bonus to construct employee housing, there are
very different fire code requirements, thus the cost of building
is much higher.
Over the past year the cost of construction has inflated at a more
rapid rate than was- anticipated for the method of updating within the
housing price guidelines. Thus any units to soon•be constructed
but approved under the old guidelines are now not even in a break-
even situation.
In the original resolution No. 20 that was presented to you, it was
proposed to update the existing guidelines and at the -same time
adopt new guidelines to reflect current construction prices. In
addition, this proposal was to reflect a staggered cost of construction
reflecting the difference between residential construction without
line costs to commercial construction without line costs.
I believe we have already passed a point at which we can consider
the development of low income housing within this valley. The
only w4y we will be able to obtain low income units within the
community is through the process of conversion of existing units
-rather than new construction.
At best the guidelines should be considered just that, guidelines.
If we set a guideline rental or sale level too low, there is no
incentive to build. If we set a rental guideline too high, it's no
longer moderate income housing. I feel the only equitable way to
O
City Council - 2 o December 18, 1979
e
evaluate projects is on an individual basis and make variations
from the guidelines based on that while still retaining them as
target figures.
Attached is a photo copy of the previous Resolution 20 as well
as some information developed by Don Fleisher and Associates with
regards to cost of development. At the same time, there is no
policy of screening or qualifying rental applicants so that the
housing is in fact provided to individuals within the community
who fall into a definition of low, moderate or middle income.
JR:ds
Attachments
RENT REQUIRED FROM EMPLOYEE HOUSING IN THE COMMERCIAL
CORE TO GIVE A ZERO RETURN ON CASH INVESTED.
Assume a rent per s.f. of net leasable area of $1.00/s.f.
Operating expenses, based on experience with other income
properties, include taxes, insurance, water and sewer,
repairs, custodial, management, etc., totalling about 20%
of gross income.
The net income to the owner is therefore 80�/s.f. of the
net leasable area.
This is the income per s.f. of net leasable area. After
allowing for hallways, stiars, mechanical rooms and other
common building areas, a building can be designed for about
an 80% efficiency of net leasable area to gross building
area.
Net income to the owner is therefore 64�/s.f. of gross
building area.
Estimated raw construction costs of apartments in commercial
core in 1980 (including carpets and appliances.) is $75.00/s.f.
Architectural fees, financing costs, development fees
and other costs (NOT SAND) tocai 36� ur raw
construction costs, based on experience, i.e. 22.50/s.f.
Total cost of construction, excluding land is $97.50/s.f.
Assuming 70% financing for 30 years at 101-,% interest, the
monthly mortgage payment per gross s.f. is 6231¢.
On'an investment of $30/s.f., an owner will receive a return of
lit per annum, or 0.5% per annum. In practice, due to the
poor cash return an owner would not be able to borrow 70%
of the -cost of the building, making his cash outlay even
larger, though his cash return would also be larger. Based
on the initial assumption, therefore, of rent of $1.00/s.f.,
an owner will receive a basically zero cash return on his
investment in the employee apartments.
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