Berlin Pankow: a 15-min city for everyone? A case study combining accessibility, traffic noise, air pollution, and socio-structural data

Glock, Jan-Peter; Gerlach, Julia · 2023 · DOAJ

DOI: 10.1186/s12544-023-00577-2

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Summary

This study evaluates the feasibility of the "15-minute city" (FMC) concept in Berlin’s Pankow district, addressing the need for sustainable urban planning that mitigates climate change and car dependency. The research investigates whether Pankow meets FMC criteria regarding accessibility to essential daily destinations via active modes or public transport, and examines the equity implications of this accessibility relative to socio-economic status and environmental exposure. Specifically, it asks if socially disadvantaged or elderly populations face lower accessibility and if there is a trade-off between high accessibility and exposure to traffic noise and air pollution. The methodology combined GIS-based accessibility analyses with a mixed online and paper-pencil survey of 701 residents. The district was segmented into inner city, outer city, and suburban areas to account for density variations. Travel times to essential destinations (e.g., schools, parks, medical facilities, grocery stores) were calculated for walking, public transport (PT), and car using ESRI ArcGIS. Walking and car impedances were derived from street network data and average speeds, while PT times used GTFS timetables. A 15-minute threshold defined sufficient accessibility. These objective measures were compared with subjective perceptions from the survey. Additionally, the study analyzed environmental data on nitrogen dioxide (NO2), particulate matter (PM2.5), and traffic noise against World Health Organization safety limits, and correlated these with socio-economic data, defining social disadvantage by the top 15% of housing blocks with residents receiving social welfare. Results indicate that Pankow generally offers the merits of a walkable city, though accessibility varies by location. In the inner city, 92% of the population has neighborhood accessibility within 15 minutes on foot, compared to 76% in the outer city and only 29% in suburban areas. Public transport accessibility within 15 minutes was low across all areas, reaching only 20% in the inner city and 0% in suburban zones. Crucially, socially disadvantaged neighborhoods did not consistently exhibit lower accessibility than advantaged ones, challenging assumptions of spatial segregation in access to amenities. However, the study identified a significant trade-off: areas with good accessibility, particularly via public transport, correlated with higher exposure to traffic noise and air pollution. Survey results supported the normative vision of the FMC, with residents generally perceiving current walking times as satisfactory, though subjective thresholds for "good" accessibility varied. The findings suggest that while Pankow aligns with the FMC vision regarding local walkability, the concept presents complex equity challenges. The lack of consistent disadvantage in accessibility for lower-income groups is positive, but the correlation between high accessibility and environmental pollution highlights a need for integrated planning. The study concludes that achieving a true 15-minute city requires balancing proximity to amenities with the mitigation of transport-related externalities like noise and air pollution. It emphasizes the importance of combining objective GIS data with subjective resident perceptions to refine planning thresholds and ensure that sustainability goals do not inadvertently compromise environmental health or social equity.

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