“Suburban” Poverty in Metro Boston: A Regional Assessment Tim Reardon, Manager of Planning Research MAPC Data Services October 7, 2013 In the recent book Confronting Suburban Poverty, authors Elizabeth Kneebone and Alan Berube examine the growing incidence of poverty outside the central cities of most American metro areas and recommend a variety of strategies to reform and remake poverty policies they deem ill-suited to a suburban context. Case studies from across the country demonstrate that lack of institutional capacity, fragmented decision making, and inflexible funding are significant barriers to more efficient and effective poverty alleviation programs and services; and that these barriers may be especially problematic in smaller jurisdictions with growing low-income populations. Given the significance of the new book and the attention it is receiving both here in Massachusetts and around the country, MAPC decided to examine the landscape of poverty in Metro Boston and specifically whether poverty is becoming relatively more prevalent in suburban communities. Using the community typology that we developed as part of the MetroFuture planning process, we conclude that the vast majority of poverty in Metro Boston still occurs in communities that would be considered urban by most observers; and that the landscape of poverty has shifted only slightly over the past ten years, without showing any definitive movement toward suburban settings. Poverty has become less concentrated in the region’s innermost cities (such as Boston and Somerville), but corresponding increases have occurred in urban communities around the periphery of the core (Quincy and Malden, for example) and more distant urban centers (e.g., Salem and Lawrence). While a small number of suburban towns have seen a rapid increase in poverty, most suburbs have seen little change or even a decline in the share of the region’s poverty since the year 2000. Our findings have implications for the national discussion about suburban poverty and also suggest new research is needed to understand more fully the dynamics of changing regional poverty. Any analysis that defines all municipalities outside of a central city as “suburbs” is likely to overstate the magnitude of poverty that occurs in a truly suburban context, and could be interpreted by some readers to mean that resources are being misallocated to urban communities and/or that suburbs, as a class, are now providing housing for their “fair share” of low-income households. Overcoming this interpretive challenge requires a more nuanced classification system that can distinguish the wide range of communities outside of a region’s principal city, ranging from high-density urban municipalities with a long history of poverty and interventions, to small suburban towns experiencing a rapid influx of low-income newcomers. More research is needed to understand the characteristics of suburban communities that have experienced an increased concentration of poverty and how they differ from suburbs where the income distribution has remained largely the same. While it is clear that suburban poverty is a growing issue in America, more work is needed to understand just how big an issue it is, where it is likely to occur in the future, and whether the institutional and financial barriers to an effective response are fundamentally different than those that have stymied efforts to alleviate urban poverty over the past 40 years. Our initial efforts to consider these issues in Metro Boston are summarized below. 1. The region has many different types of suburban and urban communities outside Boston. Ten years ago at the outset of the regional planning process that resulted in the adoption of MetroFuture (our regional plan for sustainable and equitable growth and preservation), MAPC realized that the conventional urban vs. suburban dichotomy embedded in most conversations about Metro Boston had little utility for regional analysis and was a major barrier to regional thinking, inter-municipal collaboration, and innovative approaches. In order to overcome this barrier, MAPC used a data-driven process to define five major types of municipalities in Massachusetts, and nine subtypes that range from the highest density cities in the core of the region to various smaller urban centers, suburbs at various stages of development, and rural towns1. In our classification system, urban communities are those with high population densities, a large proportion of multifamily housing, moderate and high-density neighborhoods surrounding a large and historically significant downtown, and other features generally considered to represent urbanity. (Poverty was not used as a defining variable.) Even these are a diverse set of communities that vary in size, income, density, economic activity, and job proximity. The subtypes reflect this nuance and range from high-density Metropolitan Core communities immediately adjacent to Boston (Somerville, Revere, Chelsea, Everett) to Streetcar Suburbs that are in fact relatively urbanized (Watertown, Arlington, Brookline), and Regional Urban Centers (Quincy, Lynn, Lowell, Lawrence) that act as historic urban hubs for their surrounding sub-regions. Of the four urban subtypes, the Metro Core and Major Regional Urban Centers can be considered “definitively urban,” whereas the Streetcar Suburbs and Sub-Regional Urban Centers may be considered “predominately urban.” Many, though not all, of these municipalities also qualify under federal anti-poverty programs such as Community Development Block Grants and are generally home to a robust nonprofit sector of Community Development Corporations (CDCs) and other anti-poverty organizations. Correspondingly, there are four definitively suburban Community Subtypes, which vary in their density, age of development, remaining developable land, and recent growth rates. They are primarily distinguished from urban communities by their low to moderate density and overwhelmingly single-family housing stock. Suburban communities currently house approximately 45% of the region’s population. Rural Towns are a fifth Community Type characterized by very low density, small populations, and very slow housing production; though present elsewhere in Massachusetts, none are found in the Metro Boston region. Our classification system is very different than the one used in Confronting Suburban Poverty. In order to maintain simplicity and consistency across their national survey, Kneebone and Berube consider suburbs to be every place except the first named city in the title of the Metropolitan Statistical Area (MSA), and any other named city that has a population of 100,000 or more. This definition is intended to distinguish the 1 http://www.mapc.org/sites/default/files/Massachusetts_Community_Types_-_July_2008.pdf MAPC Suburban Poverty White Paper – October 7, 2013 Page 2 “urban hubs” that form “the heart of the regional labor market” from the rest of the region2. In the BostonCambridge-Quincy MSA, only the cities of Boston and Cambridge satisfy the criteria. When compared to the definition used by the authors, MAPC’s classification system based on density, housing type, and urban form increases substantially the number of “urban” municipalities (and reduces the extent of “suburbs”) while illuminating distinctions within each category. While the same typology and identical methods may not be appropriate or feasible in other regions, our experience here, along with other documented U.S. community typology research3 provides a starting point for a more nuanced classification system that provides better insight into patterns of poverty outside central cities. 2. Most of Metro Boston’s poverty remains in urban communities. MAPC’s analyzed the extent of poverty across 164 municipalities in Eastern Massachusetts4 using American Community Survey (ACS) data from 2007-2011 so that statistics on the number of people living in households below federal poverty limits could be calculated for all of the constituent Minor Civil Divisions. Within this region, Boston and Cambridge—the two municipalities that qualify as “urban” using the book’s definition—contain 32% of all residents in poverty. But as noted above, there are many urban communities outside of Boston, including nine other “definitively urban” municipalities in the Metro Core and Major Regional Urban Centers. These cities contain an additional 22% of the region’s residents in poverty. Altogether, the Metro Core and Major Regional Urban Centers contain 55% of the region’s residents in poverty, more than double their share of the population. (See the chart below and the table at the end of this report for details.) The “predominately urban” Streetcar Suburbs and Sub-Regional Urban Centers contain 27% of the population and 26% of the population in poverty, bringing the total share of poverty in urban communities to over 80%. Only one in five residents in poverty lives in a municipality that could be considered definitively suburban. Metro Boston Poverty by Urban - Suburban Classification, 2010 50% Share of Region's Population 45% Share of Region's Poverty 40% 35% 30% 25% 45% 20% 32% 15% 10% 27% 22% 16% 5% 26% 20% 12% 0% Cities of Boston & Cambridge Other Definitively Urban Municipalities Predominately Urban Municipalities Suburban Towns http://confrontingsuburbanpoverty.org/2013/06/a-question-of-terms-suburban-poverty-authors-respond/ For example, Hanlon, B. 2009, “A Typology of Inner-Ring Suburbs: Class, Race, and Ethnicity in U.S. Suburbia.” City & Community. 8(3): 221-246; and Mikelbank, B. 2004, “A Typology of U.S. Suburban Places.” Housing Policy Debate. 16(4):935-964 4 This region is often specified as the MetroFuture Modeling Region and comprises the municipalities included in the regional travel demand model and MAPC population projection area. It excludes the New Hampshire portion of the MSA but includes portions of Worcester and Bristol Counties. 2 3 MAPC Suburban Poverty White Paper – October 7, 2013 Page 3 In contrast, Confronting Suburban Poverty indicates that “suburban” municipalities contain 69% of the MSA’s population in poverty as of 2011. By including a large number of urban municipalities outside of the region’s central cities, the analysis substantially overstates Metro Boston’s suburban poverty. In fact, the vast majority of residents in poverty live in an urban context. 3. The suburbanization of poverty in Metro Boston is slight and concentrated. Next, we examined whether poverty is becoming relatively more prevalent in suburban areas and how poverty is specifically distributed across communities. Regionwide, the number of people in poverty increased by 18% from 2000 to 2007 – 2011. Growing poverty in suburban communities may be a symptom of increasing poverty overall, not a shift in the distribution of that poverty. An appropriate measure for assessing the dispersion of poverty is the share of the region’s residents in poverty. Kneebone and Berube concluded that the “suburban” share of the Boston MSA’s residents in poverty rose from 64.4% in 1970 to 68.6% in 2011. (Comparable statistics are not provided for 2000.) Using the MAPC typology, the Metro Core Communities and Major Regional Urban Centers held 56.7% of the region’s residents in poverty in 2000; by 2007 – 2011 this had declined to 54.6% (a decrease of 2.1%). In other words, the region’s poverty is becoming less concentrated in the region’s definitively urban communities. However, most of this shift was not to suburban towns but to the predominately urban Streetcar Suburbs and Sub-Regional Urban Centers, whose collective share of residents in poverty increased from 24.3% to 25.6%. These two community types account for fully one-third of the regional increase in poverty, despite the fact that they account for only 27% of its population and less than one quarter of the year 2000 population in poverty. Meanwhile, the share of the region’s poverty in definitively suburban communities increased by less than one percentage point, from 19.0% to 19.8%. Even within suburban communities, there was only one community subtype that increased substantially—the Mature Suburbs, those postwar, moderate density, moderate income suburbs along Route 128, whose share increased from 5.2% to 5.8%. All other suburban community types (Established Suburbs, Maturing New England Towns, Country Suburbs) increased by less than 0.2 percentage points or none at all. Furthermore, the increases in suburban poverty were concentrated in only a small number of communities: the entire shift could be accommodated by five Mature Suburbs whose share of the region’s poverty grew by more than 0.1%. Meanwhile, nearly half of the region’s suburban towns had a decreasing share of the region’s poverty or no change at all. These findings indicate that there has not been a profound and substantial movement in poverty from urban to suburban communities in Metro Boston, but rather shifting patterns of poverty from one set of urban communities to another set of urban communities, with only a handful of suburbs experiencing a notable increase in low-income residents. The map on the following page depicts the change in share of regional poverty for each municipality from 2000 to 2007 – 2011. It clearly demonstrates the complex landscape of shifting poverty and indicates that more work is needed to understand the dynamics, timing, and effects of suburban poverty if we are to develop effective and responsive policy solutions at the local, regional, and federal level. Conclusions and Next Steps The analysis presented above demonstrates that poverty in Metro Boston remains a stubbornly urban problem that has begun to affect a limited number of suburban communities. While our analysis differs from that presented in Confronting Suburban Poverty, we share similar concerns: that anti-poverty efforts across the region face substantial barriers due to lack of institutional capacity, fragmented decision MAPC Suburban Poverty White Paper – October 7, 2013 Page 4 making, and inflexible funding; and that some portion of the recent growth in poverty has occurred in small jurisdictions with a limited capacity to respond. However, we remain concerned that the book’s central statistic (the share of poverty in central cities) may overstate (as it clearly does in Metro Boston) the amount of poverty that occurs in suburban communities, leading some readers to conclude that traditional programs are misallocating resources to urban communities. It may also lead readers to conclude that suburbs, as a group, are now welcoming lowerincome households to a degree that represents a historical shift or a change in the suburban housing market. Finally, we question whether the urban-suburban dichotomy that characterizes the book’s website and communication materials (if not the text itself) undermines the type of nuanced, regional thinking that the work is intended to promote. Two outstanding questions will guide the next steps in our research: first, do the few suburban communities that have experienced an increase in poverty share characteristics—such as an aging population or a weakening school system—that would help us to better understand why they have changed so dramatically and what other municipalities might face similar challenges in the future; and second, how does the new landscape of poverty relate to the traditional infrastructure of poverty alleviation, such as entitlement communities, qualifying Census Tracts, CDC service areas, and the like? If indeed there is a need to “reform and remake” federal policy, there is also a need to answer both of these questions at the national level if that reformation is to be successful. MAPC Suburban Poverty White Paper – October 7, 2013 Page 5 MAPC Suburban Poverty White Paper – October 7, 2013 Page 6 Poverty in Metro Boston, by Community Type 2000 to 2007 - 2011 Community Sub-Type Population 2000 Population in Poverty, 2000 Share of Region's Poverty, 2000 Poverty Rate, 2000 Population 2010 Population in Poverty, 2010 Share of Region's Poverty, 2010 Poverty Rate, 20105 Cities of Boston and Cambridge6 690,496 120,423 33.8% 17.4% 722,756 136,469 32.4% 21% Other Metro Core Municipality 254,218 33,763 9.5% 13.3% 263,803 40,064 9.5% 16% Major Regional Urban Center 271,514 47,673 13.4% 17.6% 276,706 53,758 12.7% 20% Streetcar Suburbs 400,933 22,394 6.3% 5.6% 404,651 29,611 7.0% 8% Sub-Regional Urban Center 779,431 64,223 18.0% 8.2% 799,926 78,386 18.6% 10% Mature Suburban Towns 471,312 18,408 5.2% 3.9% 477,842 24,313 5.8% 5% Established Suburbs 540,571 16,607 4.7% 3.1% 559,522 19,646 4.7% 4% Maturing New England Towns 678,993 25,696 7.2% 3.8% 714,646 30,480 7.2% 4% Country Suburbs 219,224 6,950 2.0% 3.2% 237,876 8,983 2.1% 4% 4,306,692 356,137 8.3% 4,457,728 421,710 Metro Boston 9.8% The denominator for calculation of the poverty rate is persons for whom a poverty status has been determined, which is smaller than the total population While the cities of Boston and Cambridge are considered members of the Metro Core Community Sub-Type, they are presented here as their own type to facilitate comparison to the analysis by Kneebone and Berube. 5 6 MAPC Suburban Poverty White Paper – October 7, 2013 Page 7
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