Well first, I'd separate personal housing from FC housing. Create an equal number of wards for personal housing, and if a player has a house in LB in plot say... number 7 ward 8, then that house would be moved to private ward 8 plot 7 from company ward 8 plot 7. Keep FC housing and personal housing separate.

Next, set the system to generate new wards when 97% of the existing wards are filled. This way, everyone can have a shot at a house. Housing costs can remain as is.