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 I often see folks say that developers should “just” turn empty downtown offices into housing. I have a bit of experience there, and that’s actually extraordinarily difficult, frequently more expensive than razing and rebuilding. Modern office buildings are *terrible* for housing, in every possible way. Here’s a great 99 Percent Invisible episode that covers this really well! https://overcast.fm/+yIOx6rEm8 
 @b57823a9 

If it is profitable, it will happen without calling it out. My guess is that red tape combined with high risk are the main obstacles, making developers cautious (no offices downtown will reduce demand for housing).

And large cities in USA (NYC is probably not even the worst example) have a tougher stock than cities in Europe that once (1970s-1980s) converted housing into offices in downtown areas.