THE 20-MINUTE SUBURB A PLANNING FRAMEWORK FOR CONNECTED COMMUNITIES
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CONTENTS Introduction: The Suburbs are Changing 03 Chapter 1: Context and Challenges 04 An Outdated Development Model 21st Century Suburbs: Changing Demographics, New Challenges What Does Reform Look Like? Chapter 2: Precedents and Best Practices 07 Carlos Moreno’s 15-minute City Chapter 3: The 20-Minute Suburb 14 Framework Overview Amenity Density Connectivity Conclusion 29 References Acknowledgements 2
EXECUTIVE SUMMARY Recommended Design Guidelines The distinctive built fabric of American suburbs has largely Key 15-Minute Current 20-Minute Elements depended on car travel and single-use zoning for decades. City Model American Suburb Suburbs In the process, this pattern of development has increased Amenity Provide 6 essential 75% of the Provide diverse and sprawl, exacerbated our carbon footprint, and heightened functions: urbanized area in affordable housing segregation within communities. Living, Working, U.S. cities is zoned options Commerce, for residential use Healthcare, only Provide neighborhood Education, and amenities and Entertainment prioritize services As the global COVID-19 pandemic continues to shape ↪ Site-specific design interventions to guide for underserved migration patterns, and suburbs face new pressures suburban municipalities across three typologies: communities and demands from their changing populations, mixed-income residential suburbs, suburban this report proposes a framework for a “20-minute periphery/underserved communities, and local suburb” designed to retrofit suburbs into places where town centers Density N/A 1 - 8 DU / AC Average 8 DU / AC residents can meet all of their daily needs within a 20-minute walk. Connectivity 10-15 min walking Incomplete 20-minutes walking or A summary of our recommended design guidelines is indicated to the right and explained further in the or biking pedestrian and bike biking In order to re-envision our suburbs as more affordable, following chapters. Transforming American suburbs network interconnected, accessible, and equitable places to live, is a long-range effort that will require consensus- First and last mile travel this framework provides: building and participation from many stakeholders; solutions we have created this report as a resource for planners, ↪ A brief history of the development of American policymakers, elected officials, and community suburbs and the lasting impact of this legacy Multimodal network leaders. We hope you find the 20-minute suburb a connections ↪ Emerging demographic trends within suburban useful framework to begin thinking about how to populations, particularly through the lens of the improve amenity, density, and connectivity within your pandemic community. ↪ Ongoing reform and policy measures that enable better design and planning decisions 3
INTRODUCTION THE SUBURBS ARE CHANGING Photo Credit: David Jay Zimmerman/Corbis Documentary/Getty Images 4
INTRODUCTION Post-pandemic Moving Trends Net Population Change Net Population Change in 2020–2021 Loss Gain In many major urban areas across the US, the onset of the global pandemic has driven people to relocate from cities to the surrounding suburbs in search of Chicago SONOMA NAPA affordability, space, and access to nature. SOLANO MARIN Austin CONTRA COSTA SAN FRANCISCO Notably, the increase in moves during 2020 was driven by young, affluent and highly ALAMEDA educated urban dwellers—reports in late 2020 indicate 48% of millennials and 49% of Gen Z living in suburbs, up from 44% and 41%, respectively, in 2019. SAN MATEO New York This demographic is mobile and prone to relocating, especially in the context of an increasingly remote and hybrid work environment. A recent report that accounts for SANTA CLARA 2020 US Census data revealed an increase from 14% to 16% from 2019 to 2020 of residential moves, the first increase in over a decade. Los Angeles San Francisco Bay Area 5
INTRODUCTION Many of these newcomers to suburban areas desire a level of multi-modal access to green space and amenities on par with the connectivity they experienced in urban settings, but is largely absent in most American suburbs. As suburbs expand and their demographics shift, how can policymakers and planners establish frameworks for improving diversity, density, and connectivity, while preserving affordability and preventing displacement? Photo Credit: Photo Beto/iStock Unreleased/Getty Images 6
INTRODUCTION Taking a holistic view of these issues, our urban design and planning team posits a planning model that we have termed the “20-minute suburb.” Through careful and strategic interventions, we believe that existing suburban communities can be transformed to become places where residents can meet all of their daily needs within a 20-minute walk. This is a radical reinvention of a suburban planning model that has historically marginalized low-income communities and people of color—instead, we envision the 20-minute suburb as a framework for reconnecting communities and expanding economic and social mobility. Photo Credit: monkeybusinessimages/iStock/Getty Images 7
AN OUTDATED DEVELOPMENT MODEL Initially, the expansion of American suburbs was enabled by the extension of street car rail lines beyond city limits, making daily commutes possible. By the end of WWII, however, suburban By the 1960s, many Blacks were migrating from populations grew exponentially as car a segregated South to the north and west of ownership increased and federal infrastructure the country in search of jobs and educational bills, such as the Highway Act of 1956, opportunities. These movements fueled racial supported the construction of extensive tensions, and drove many white city-dwellers highways throughout the country. During this to the suburbs. The growth and corresponding time, cheap, mass-produced housing abounded, segregation of the suburbs were enshrined by enabled by the standardization of household discriminatory zoning policies such as redlining, appliances and prefabrication of construction which prevented investment and lending within materials. This development model is perhaps and near Black communities, and provisions best exemplified by Levittown, an early that ensured development would largely remain prototype for suburbia that promised a pathway zoned for single-family use. to home-ownership for most white Americans. The passing of the G.I. Bill further guaranteed affordable housing with low down payments and interest rates for returning veterans. Photo Credit: iofoto/shutterstock 9
21ST CENTURY SUBURBS: Population Residing in Suburbs, Race-Ethnic Groups White Asian Hispanic Black CHANGING DEMOGRAPHICS, Major Metropolitan Areas*, 1990–2020 NEW CHALLENGES 75.8 76.6 75.8 76.6 76.0 76.0 73.4 73.4 In a notable shift from the white flight of the 56.9 56.9 61.5 61.5 63.1 63.1 58.4 58.4 61.4 61.4 54.3 54.3 1960s and 70s, a majority of contemporary 53.4 53.4 52.9 52.9 49.5 49.5 50.2 50.2 42.8 42.8 suburban dwellers are people of color. In 36.6 36.6 fact, most large suburbs often contain more diverse populations than the closest major 1990 1990 2000 2000 2010 2010 2020 2020 1990 1990 2000 2000 2010 2010 2020 2020 1990 1990 2000 2000 2010 2010 2020 2020 1990 1990 2000 2000 2010 2010 2020 2020 metropolitan areas. Primary City and Suburb Race-Ethnic Profiles White Asian Hispanic Black Major Metropolitan Areas*, 1990–2020 American Indian 2+ Races Other White White Asian Asian Hispanic Hispanic Black Black American AmericanIndian Indian 2+2+ Races Races Other Other Primary Cities Suburbs 7.97.9 9.2 9.2 Data from the 2020 US Census reveals that more than 50% of white, Asian-American, 24.5 24.5 9.0 9.0 10.6 10.6 11.2 11.2 23.9 23.9 22.1 22.1 20.1 20.1 Latino or Hispanic, and Black Americans now reside in the suburbs, and for the first time 3.5 3.5 12.8 12.8 17.4 17.4 the majority of suburban dwellers under the age of 18 are people of color. While white 4.8 4.8 20.2 20.2 17.1 17.1 6.5 6.5 suburban populations have remained consistent since 1990, the past thirty years have 22.1 22.1 26.1 26.1 27.1 27.1 8.2 8.2 seen a distinct increase in suburban population for all other major race-ethnic groups. 5.6 5.6 7.17.1 8.5 8.5 10.3 10.3 79.1 79.1 70.9 70.9 63.0 63.0 52.1 55.4 55.4 52.1 44.0 44.0 40.4 40.4 37.5 37.5 1990 1990 2000 2000 2010 2010 2020 2020 1990 1990 2000 2000 2010 2010 2020 2020 *Major metropolitan areas are 56 metropolitan areas with populations exceeding 1 million in 2020. Source: Brookings Metro 10
21ST CENTURY SUBURBS: Carbon Footprint per Service Population CHANGING DEMOGRAPHICS, NEW CHALLENGES Present-day American suburbs are largely zoned for single-use and remain car-centric— Low-Density Residential FAR up to 0.5 Low-Density Office FAR up to 0.5 Mid-Density Mixed Use FAR up to 1.5 Service Population: up to 3,000 Service Population: up to 2,000 Service Population: 10,000- 20,000 this pattern of development has inevitably led to a rising carbon footprint through increased energy use, pollution, and traffic congestion. Mid-Density Office Mid-High Density Mixed Use High-Density Mixed Use FAR up to 1.0 FAR up to 4.0 FAR higher than 6.0 Service Population: 2,000 - 5,000 Service Population: 20,000- 40,000 Service Population: 100,000 - 150,000 Carbon Emissions per Capita (Service Population) San Francisco Bay Area, 2022 15,00 tons A study conducted by SOM in 2022 on decarbonizing communities in the San Francisco Bay Area and its outlying suburbs reveals a carbon footprint per service population (which accounts for both residents and commuters) in the Bay Area's outlying suburbs as much as three times larger than the city’s downtown per capita footprint. As indicated in the chart to the right, the study compared 10,000 tons six different areas from low-density residential to high density mixed use, and considered buildings, roadways, utilities, transportation and open space as part of its carbon calculations. 5,000 tons Low-density Low-density Mid-density Mid-density Mid-high High Density Residential Office Mixed Use Office Density Mixed Use Mixed Use 11
21ST CENTURY SUBURBS: CHANGING DEMOGRAPHICS, NEW CHALLENGES While the socioeconomic diversity within suburbs has undoubtedly increased, affordability still remains a central obstacle for residents seeking alternatives to the rising cost of city living. Approximately 75% of developed areas in the US remain zoned for residential use, limiting development to single-family homes or one unit per lot. Minimum parking requirements have further driven up the cost of housing construction, disincentivized affordable housing, and increased dependency on car travel. American households average more than one vehicle per household, and in many suburbs, bike lanes and sidewalks are few and far between or non-existent, severely limiting walkability and multi-modal access. A lack of affordable housing policy in the suburbs and the legacy of exclusionary zoning has also increased the socioeconomic divides between cities and suburbs, and disproportionately limited low-income families’ paths to home ownership. Photo Credit: David Jay Zimmerman/Corbis Documentary/Getty Images 12
WHAT DOES REFORM LOOK LIKE? In recent years, civic and government leaders have introduced policy initiatives to address these interconnected challenges to suburban development. Our San Francisco-based planning studio Enacted in 2022, the California Home Act began by looking at federal and local Senate Bill 9 (SB 9) streamlines the process Californian precedents to better understand for a homeowner to create a duplex or emerging trends and priorities to inform policy subdivide an existing lot, with the goal of making in other contexts. increasing housing density and affordability. Passed in 2021, President Biden’s Bipartisan In San Jose, Opportunity Housing is the city’s Infrastructure Law calls for cities to limit solution for enabling multi-unit housing on single-family zoning and instead build more properties with a Residential Neighborhood housing. The resulting $5-billion Housing General Plan land use designation, which Supply Action Plan bestows grants and tax generally covers single-family neighborhoods. credits to local governments to eliminate These measures can improve access to San Francisco Bay Area exclusionary zoning rules. In the process, housing and affordability by increasing the Zoning Map the program aims to bolster more equitable City’s housing supply over time in response to access to affordable housing. housing shortages and lack of multi-use land. Single Family Residential Zoning Other Residential Zoning https://belonging.berkeley.edu/single-family-zoning-san-francisco-bay-area 13
WHAT DOES REFORM LOOK LIKE? Across the country, accessory dwelling units (ADUs) have increasingly become viable solutions for increasing density in single-family-zoned areas, providing more accessible and affordable housing options in the process. Los Angeles in particular has successfully championed ADUs; after statewide legislation went into effect, permits increased from 71 to 6,747 from 2014 to 2019. Statewide, California has seen an 11-fold increase in permit requests from 2017- 2019. For moderate- and low-income homeowners, however, experts advise greater government involvement—whether in the form of loans, subsidies, easing regulatory requirements or streamlining the permitting process—to make ADU construction more affordable and accessible for all homeowners. Photo Credit: Tom Rumble/Unsplash 14
CHAPTER 3 PRECEDENTS + BEST PRACTICES Photo Credit: Bim/Getty Images 15
CARLOS MORENO’S 15-MINUTE CITY Our study builds upon urbanist Carlos Moreno’s concept for a “15-minute city,” in which decentralized city growth ideally connects residents to six essential functions: living, working, commerce, healthcare, education and entertainment, all within a 1 15-minute walking or cycling distance. 4 2 1 Parking spots transformed into terraces and gardens 3 2 Streets made amenable for pedestrians and bicycles 5 3 4 A garden at your doorstep Safe journeys for children 1 5 More local services Photo Credit: N.Bascón/for Paris-en-commun 16
CARLOS MORENO’S 15-MINUTE CITY A successful 15-minute city further incorporates density, proximity, diversity and digitalization to improve connectivity and access for all residents within this framework. Introduced by Moreno in 2016 and revised in 2021 in response to the urban challenges posed by the COVID-19 pandemic, the 15-minute city draws from seminal work by Jane Jacobs, Jan Gehl, Christopher Alexander and W.H. Whyte, among others, on the benefits of hyper-local community building, connectivity and proximity, and access to green space. At this scale, as Moreno and his predecessors argue, development makes way for a more localized way of living. Other popular models of contemporary urban development similarly promote human-scaled urban design and the importance of networks and connectivity, such as New Urbanism, Smart Growth, Project for Public Spaces and the smart city movement. Photo Credit: leezsnow/E+/Getty Images 17
CARLOS MORENO’S 15-MINUTE CITY 15-minute City Model Comparison 服务-类型丰富、便捷可达的社区服务 Paris Shanghai 对于新建地区,建议参照理想设施布局模型,确保各类人群都能步行 Melbourne 便捷的使用各类设施;对于已建成地区,结合实际情况和居民需求,尽可能 15-Minute City 15-Minute Living Circle 完善主要人群的设施圈和步道通联。 20-Minute Neighborhoods The 15-minute city concept is currently 图 5.8 社区设施圈层布局示意 中学 being deployed at different scales in cities 社区卫生服务中心 幼儿园 小学 around the world and has gained momentum 小型商业 儿童游乐场 社区行政设施 菜场 家 since 2020, when the C40 Cities Climate 公园 分 养老设施 大型超市 五 钟 社区文化设施 室内体育场馆 Leadership Group announced a 15-minute 十 分 钟 五 十 分 钟 city pilot program for five global cities. 设施类型 儿童常用设施 设施服务圈 60-69岁老人日常设施圈:以菜场为核心,与绿地、 小型商业、学校及培训机构等设施临近布局 儿童&老人常用设施 Population Density Population Density 老人常用设施 儿童日常设施圈:以各类学校为核心,与儿童游乐场 及培训机构等设施有高关联度 Population Density 上班族周末设施圈:以文体、超市等设施形成社区文 上班族常用设施 化、娱乐、购物中心,引导上班族周末回归社区生活 24 DU/Acre 30 DU/Acre 养老设施:由于本次调查,70岁以上老人样本量较少,目前考虑老人对于养老设施的短距离步行 需求,将其布局于5分钟设施圈,待后续扩充样本后校核。 15 DU/Acre 目标 构建一个高效复合、共享共赢的设施圈。根据各类设施的布局要求和 使用需求,鼓励综合设置各类设施,整合社区内可共享的功能空间,制定高 Catchment Area Catchment Area 效灵活的利用机制。 Catchment Area In Paris, the 15-minute city was a central component of the Mayor Anne Hidalgo’s 规划要求 successful re-election campaign and the city is currently targeting bike lanes on every street by 2024 and converting over 70% of on-street parking for community-centered 38 activities. Shanghai, grappling with higher population density, is envisioning a series of “living circles” at 5-, 10- and 15-minute scales to provide a range of services in both urban and suburban contexts. In Melbourne, a relatively smaller city compared to Shanghai 3/4mi | 1,200m 1/2mi | 800–1,000m 1/2mi | 800m 15 min 15 min and Paris, similar principles are being scaled to 20 minutes, with the goal of providing 10 min essential functions at the neighborhood level. 24 DU / Acre 18
CARLOS MORENO’S 15-MINUTE CITY The 15-minute city model has seen global success, particularly in urban contexts that already experience high levels of density and can accommodate the required infrastructure and infill. However, in the context of the American suburb, this model of development is incompatible with the scale of most suburban communities. Our vision for the 20-minute suburb considers the built fabric, zoning and legislative limitations and opportunities specific to the typical American suburb in order to deliver a scalable framework for retrofitting suburbia. Photo Credit: halbergman/E+/Getty Images 19
CHAPTER 4 THE 20-MINUTE SUBURB Photo Credit: Avi Waxman/Unsplash 20
FRAMEWORK OVERVIEW Our 20-minute suburb concept provides a site- specific framework that existing suburban municipalities can use to guide future development. 20-minute Suburbs Suburban Town Center Biking Distance Walking Distance 21
FRAMEWORK OVERVIEW In order to recommend high-priority services and interventions based on different socioeconomic contexts, we organize suburbs into three types: ↪ Suburban Periphery/Underserved floor use, and prioritizing main street Communities These communities are access to regional transit. An emphasis on sometimes characterized by economic or creating safe open and recreational spaces racial segregation. Service priorities should can also preserve the age diversity within include diverse and affordable housing these communities. options, community facilities and programs ↪ Local Town Centers These mixed-use to provide essential services. An emphasis districts provide daily amenities. They on safe pedestrian and biking environments should be connected to regional transit and and improved public transportation options within walking distance from residential can better connect these communities to neighborhoods. Priorities for future local town centers and corresponding job development should include creating and and educational opportunities. expanding local work hubs, distribution ↪ Mixed-Income Residential centers, and mixed-use high density. Since Suburbs These communities should the pandemic, local town centers have prioritize mixed-use commercial corridors, become increasingly crucial destinations for and diverse and affordable housing options daily amenities and work spaces, allowing to retain the diversity of the community. residents to reduce commute times and Strategies include converting vacant lots, travel between suburban and urban areas. retrofitting main streets with active ground Photo Credit: SpVVK/ iStock/Getty Images 22
FRAMEWORK OVERVIEW Within the context of each community type, our framework proposes interventions according to three elements critical to creating livable communities: ↪ Amenity A diverse array of functions should be available, enabling suburbs to accommodate and co-locate businesses, commercial and cultural spaces, housing, support services, and civic programs. ↪ Density New mixed-income housing, healthcare, education, and support services should be created at key locations to expand affordability and to create the density needed to support essential programs and functions. ↪ Connectivity Within a 20-minute walking distance, people should be able to fulfill all their daily needs. First and last mile travel must be provided, and bike and pedestrian networks should be integrated with existing transit infrastructure. 23
AMENITY Increasing mixed-use development in the suburbs calls for a site-specific approach, as every community has different needs. While some neighborhoods may require significant affordable housing development, others may prioritize commercial space to revive downtowns and main streets. During the pandemic, for instance, many restaurant streeteries and parklets were actively used in mixed-income residential suburbs. In suburban periphery/ underserved communities, however, these spaces did not cater to the immediate needs of the community and were not maintained. Photo Credit: Yuening Pu 24
AMENITY DEVELOPMENT STRATEGIES We propose strategies for increasing variety and a mix of uses across these three suburban typologies. Suburban Periphery/Underserved Community Mixed-income Residential Suburb Local Town Center SERVICE PRIORITIES DEVELOPMENT STRATEGIES SERVICE PRIORITIES DEVELOPMENT STRATEGIES SERVICE PRIORITIES DEVELOPMENT STRATEGIES Diverse and affordable housing options Program and identify central, Main commercial mixed-use street Convert vacant lots to provide infill Main commercial mixed-use street Convert vacant lots to provide infill accessible locations to provide safe development development Community facilities and programs Diverse and affordable housing options Diverse and affordable housing options and essential services Affordable and subsidized child care Recreation and open space Retrofit main streets with active Recreation and open space Retrofit main streets with active options ground floor use ground floor use Prioritize main street access to Prioritize main street access to regional transit regional transit 25
DENSITY Development strategies For the 20-minute suburb to work, a typical neighborhood should have an average of 8 Abolish exclusive/single-family zoning dwelling units per acre (du/ac). In local town Flexible zoning to allow for multi-family housing centers, where commercial services require a Streamline ADU legislation minimum population to be financially viable, Encourage parcel subdivision this density increases to 15 du/ac. Increase height limits Ease or eliminate parking requirements in single family residential zones Photo Credit: MasaoTaira/iStock/Getty Images 26
DENSITY DEVELOPMENT STRATEGIES ADU Several strategies can be applied across all suburban typologies (suburban periphery/underserved community, mixed-income residential suburb, local town center) in order to increase density. Parcel Subdivision ↪ Abolish exclusive/single-family zoning ↪ Implement flexible zoning to allow for multi-family housing ↪ Streamline ADU legislation Multifamily Housing ↪ Encourage parcel subdivision ↪ Increase height limits ↪ Ease or eliminate parking requirements in single family residential zones 27
CONNECTIVITY Connectivity is the final piece of our framework, Strategies to address the issue and an essential ingredient for realizing cohesive Neighborhood hubs (such as schools, main streets, civic or and safer suburban communities. community centers) should double as local transit nodes and provide access to local town centers A minimum of two main pedestrian routes with dedicated bike lanes to the local town center A minimum five foot sidewalk width on main pedestrian routes First and last mile travel—the distance between transit and your final destination—in First and last mile travel solutions where 20-minute walking particular should be prioritized, as well as bike and pedestrian infrastructure, improved catchments are unfeasible (e.g. scooters, on-demand transit street lighting and sidewalk safety. Within this transit ecosystem, transit options every two miles or less would be required in most suburbs to offset service gaps and support service) 15 to 20-minute walking distances. Sidewalk lighting for pedestrian safety However, expanding the catchment area to 20 minutes is not enough to service most suburban populations. An aerial view of the typical suburb reveals the impractical shape of American suburban built environments. Extensive culs-de-sac and dead-end roads limit connectivity between and within communities, which in turn artificially Trail connections between cul-de-sacs and adjacent streets increases distances between destinations. These longer distances disincentivize active should be provided wherever possible to improve access for modes of travel, and ultimately increases the daily vehicle miles traveled. bicycles and pedestrians. Photo Credit: photoschmidt/iStock/Getty Images 28
CONNECTIVITY DEVELOPMENT STRATEGIES Our recommendations for improving connectivity and walkability include: ↪ Neighborhood hubs (such as schools, main streets, civic or community centers) that double as local transit nodes and provide access to local town centers ↪ A minimum of two main pedestrian routes with dedicated bike lanes to the local town center ↪ A minimum five foot sidewalk width on main pedestrian routes ↪ First and last mile travel solutions where 20-minute walking catchments are unfeasible (e.g. scooters, on-demand transit service) ↪ Sidewalk lighting for pedestrian safety ↪ Trail connections between culs-de-sac and adjacent streets provided wherever possible to improve access for bicycles and pedestrians. Photo Credit: Kurumi Nishioka for Skidmore, Owings & Merrill 29
CHAPTER 4 CONCLUSION Photo Credit: Jandrie Lombard/Shutterstock 30
CONCLUSION The 20-minute suburb framework has the potential to transform American suburbs into denser, more diverse and better connected communities within a broader network of suburban and urban development. In the process, we can design environments in which residents can meet all of their daily needs within a 20-minute walk—from school and work, to medical needs, shopping, food, or access to open space. By reinventing the built form of our suburbs, we can begin to dismantle decades of segregation, displacement, exclusion, and carbon-intensive living in our built environment, and instead foreground a planning practice centered on diversity, connectivity, and equity. 31
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ACKNOWLEDGEMENTS CONTRIBUTORS Ellen Lou Joo Cho Ran Li Sushmita Shekar Shu Pan For more information on the 20-minute Olivia Jia suburb framework, please contact: David Vanderhoff Ellen Lou ellen.lou@som.com GRAPHICS Grace Hsu Joo Cho Nathan Bluestone joo.cho@som.com 33
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