Soviet housing legislation of the 1920s was aimed at ensuring access to scarce housing for workers and Soviet employees, including low-paid ones. For them, nominal rent rates were set and strict limits were imposed on eviction for nonpayment (up to a ban on eviction without providing alternative housing), while for those living on "unearned income" rent rates were dozens of times higher and restrictions on their eviction were almost nonexistent.
However, such a policy did not provide the necessary funds not only for new construction but also for maintaining the existing housing stock, and it also made it difficult to provide housing for new employees of institutions and enterprises. Therefore, Bolshevik lawmakers sought to find a balance between the interests of the "working people" and the need for the housing and коммунальные services sector to obtain funds. Judging by the fact that laws on the size of housing rent were issued almost annually and even more often, it was not possible to find such a balance.
Measures were adopted to increase housing construction. Developers (including cooperatives and private entrepreneurs) were granted various benefits, including exemption from the need to provide privileges to the "working people." However, the general conditions of the NEP virtually ruled out long-term private investment, so these measures did not produce any noticeable results.