I wouldn't carve out an exception for apartment complexes.

Transition apartment complexes to a condo model with HOA fees to cover all the shared upkeep and expenses. Limit HOA fees to real upkeep costs and expenses (no massive profits for a HOA management company).

My sister-in-laws first place was an apartment complex converted to condos. Her mortgage plus HOA fees where the same as the rent on a comparable apartment in he area.

When she got married, had kid, and purchased a larger place 5 years later, she got her down payment plus all of her mortgage payments back (sold it for 10% more than she bought it for).