If you haven't already done so, could I suggest that you do your keyword research into suitable key terms.
That is, check out the search volume for the following:
* service
* service city 1
* service city 2
* service city 3
* service suburb a
* service suburb b
* service suburb c
* service suburb d
* service suburb e
* service city 1 suburb a
* service city 1 suburb b
* service city 1 suburb c
* service city 1 suburb d
* service city 1 suburb e
and so on.
You may find there is little or no traffic for most of the suburbs.
However, if you are building a website for an ice cream shop franchise that has a shop in every suburb, then you may need to create a unique page with some information about that suburb as well as your standard icecream blurb, for every suburb.
A better way to do this may be to advertise on a site that already exists and gives information on all suburbs. A text ad for the icecream on each page would come up in the SERPs for "suburb icecream".
Is this what you are trying to accomplish?