Housing is a cultural problem as much as it is a scarcity problem. I'm from Spriggan, and I've seen entire wards owned by a single person, entire subdivisions being the same, a great deal of empty and unfurnished homes, and yet the apartments are all but empty, despite this vaunted 'demand'. Somewhere like Balmung is an easy fix of just getting more housing/apartments into the system, but somewhere like Spriggan (a server that was quiet until last year) needs a fundamentally different approach.