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ROBERT MOSES AND CITY PLAIINING JOEL SCHWARTZ Ioel Schwartz died before he could complete his essay for this volume. We include Ihis unfinished draft, however, as a tribute to his scholarsh ip on Robert Moses and in grateful recognition of the generous spirit of this kind and decent man. KJ R..hert Moses was not fond of city planning. This judgment rests largely on opportrrity that had corne and gone. Merchants along Fifth, Sixth, alld MOl;eS'ti relentless attacks on "the long-haired planners" and his ridicule of Seventl avenues launchedthe idea of zoning 10 protect the Ladies' Mile Iro.u 111(~ir collectivist vision. It also stems from three episodes that evidenced obnoxinis garment workers. And Dual Subway Contracts put into permanent MClSI~S'H intolerance of what planning meant. First, he dismissed RexfOl'd form th commercial and business concentration in Manhattan us well as Jill Tugwell's cherished "greenbelts" in the late 1930s, which forced the New ear citiis strung [JIang transit routes in the outer boroughs and surrounding n(~alor to withdraw as chairman of the city planning commission. Second, countie, l3etweenthese two developments, major planning questions within IIII~ aggrandizement of the Federal Title I program, a kingdom over public New Yo·khad heen put tu rest. works after World War II, was unprecedented in the city's history. And third W/IS the dustup with Jane Iucobs over megaliths and an expressway that PLANUNG IN THE 19205 threutened Greenwich Village. Never mind that Tugwell once called Moses tlw "s(,(,ond or third best thing that. ever happened" In New York; that other III the lecade after World War I, city planning was tom between mundane ('il ics,like Chicago, Cleveland, and Detroit, suffered greater depredations to pretene and ambitious endeavors in master planning. The creation of V1lSI Ilwir IH!ighborhoods from Title I clearance; or that Ms. Jacobs's wrath was rail ant transit grids trumped major planning issues. The holistic approach lillln) justly aimed at anti-urbanists, like Le Corhusier, The condemnation is had los ground to narrow specialties Iike traffic control, sewerage, or teno- .'lli~cblin stone: Robert Moses's hubris, his hijacking of city planning into ment eform, when it was not ensnared by zoning and subdivisions. It v(·hil,!«·!1'01' personal power, destroyed whatever contribution the discipline Hundnds of communities took up zoning; ill most this amounted 1:0 a 1'e<1()- Il1il~"! luivc ruar]e to the public good and led to, according to Robert Caro, the tionaryzeal 10 "protect" home grounds against the "invasions" of gas S111- plllllil II' (nil or N«!w York. tions, cl tanks, and apartments. I~1~~lII,i 'rh,) pt'nbl(\1\1.with this judgment is that it takes city planning as a tangi- Thee was, or course, the sustained effort by the Regional Plan .f:nII'11 wi 1 I.],· [d"IIi, wllell il was more often a receding goal, unreachable in most Associ.tion of New York and lis Environs (RPNY), sponsored by the Russell /1'1'1,111'11'1 .\ 1IIl'ri"I<I'1 ('il iI's ,lIld certui nly beyond the grasp of' New York. Jon A. PeLel'~on Sage Fumdarion. RPNY was most: notable for its forecasts of continued cen- ,\,"-\lIj,.;! I, 11.lhll. IlIlilk Tl«: IJi,.l/' (!l City Planning in the United Suues: 1840-1917 tripetal growth as Manhattan and Brooklyn spun out their manufacturing ell Ii !',i.iHl:llIVIl' \.·IIII,ltD~iz\·d <)ol.nprehensive planning's far-reaching, multifaceted plants and port facilities to cheap zones on the periphery. RPNY's rail "l'l'rp,u·11 In iii'; !aq(t: city llnd its problems: transportation, centred business expert.William H. Wilgus, and its chief theoretician, Thomas Adams, called ,li·,IUt·!, •• hlllliiillg alld /111111111, lIeighl)orhood refinements-c-all taken together, for ratimulization of the region's transport and "reconcentration" of urban 1'lilM I,II··i 111'1 id"HIIi/' tho "I)lu~t(!r pluu'' as it took form in the years before densiti.s along outlying rail junctions. RPNY gave the intellectual impri- \, •.,il,1 \\'(1)1 /1111111i' New York III(: opporumity 'I'OJ master planning was an matur b the most important of metropolitan visions (the latest version of till' 'Iii ':.' 1'l'Ii.1 i,\\:·H.' !dIn, 1('( i'IAIIHII"I'; '1 ::'dty-efficient): the land near Wall Street was too valuable for the tenements ning." 1 ';;;,'\hat sat on it; the Lower Easi Side deserved clearance and gentrification; and Buffalo, :the working class needed to be shifted to the outer boroughs, To reclaim the and, JUS! l'i/evacuated portions of the Lower East Side, Clarence A. PelTY called for the (Inthisi " rebuilding of the evacuated portions of lower Manhattan into svelte pieds-a- pelago.:c terre built as "neighborhood units," Harland Bartholomew saw six-lane and its-s " boulevards as the means to smooth commercial traffic, promote abutting real the "td,~ '",estate, and cordon neighborhoods into natural zones, Local b'oosters, encour- Peekski] aged by the RPNY, pushed for city-busting highways. One can almost hear Palisade their refrain, "We need to destroy the Lower East Side in order to save it." In:hE Far more grandiose were the plans of a small, clamorous group,'the Regional the nec~ Planning Association of America, led by Clarence Stein, Benton MacKaye, and Forest'l' Lewis Mumford, which came to represent comprehensive planning's shining that spIe image, They admired British reformer Ebenezer Howard's idea for "garden commerr cities," tightly controlled places of thirty thousand people surrounded by agri- contini!i:~ cultural greenbelts, Guided by technocrats who understood mankind's "domin- both tH,~, ion of tbe earth," the RPAA wanted government to transform "sterile villages" brouglitil in the Hudson and Mohawk valleys into a series of urban diadems linked by coordj~ii "townless highways" and "giant power," energy of the 51. Lawrence, Niagara, also J:e~r~ and Black rivers to drive light-metals plants or Ford Molor-type assembly-line Gerritse! facilities, From this distance, the RPAA's vision seems typical of the hubris that Queens, took hold between the wars, the faith in big research by governmenL, universi- resent~d< ants along Fifth, Sixth, and ties, and foundations that spawned high-brow committees to comment on recent , protect the Ladies' Mile from social trends, national resources, even Professor Alfred Kinsey's collection of .:\;/ 'Contracts put into permanent HOUSil!1 twenty thousand sexual histories. These all aimed at achieving the totalist view '011 in Manhattan as well as lin- of American life as an objectified, quantified mechanism. Within that perspec- One co'ifl ter boroughs and surrounding tive, Moses was a creature of his time. city plart jor planning questions within Moses started out a sterling candidate for the planning cause. At Oxford, turf fr01~ he studied public administration, admired the steeliness of the English civil H, La ~Q service, and came under the sway of British socialists like Graham Wallas, he maq(f}. who coined the term "Great Society" to capture the hopes for a purposeful prehelis~1 public sphere, Moses returned to America enamored of this viewpoint and York w$.$ g was lorn between mundane worked for the good-government crowd in New York City. Through family Givic1e~i arming. The creation of vast connections, Moses gained notice of Alfred E. Smith, then New York State ifig strate issues. The holistic approach Assembly leader, who admired the bright, young Columbia Ph.D" made him th~ mOJ~1 c control, sewerage, or tene- secretary of his Reconstruction Commission, a position that meant working !ButitB zoning and subdivisions. with the executive budget, the gubernatorial cabinet, the New York Port hensiY~::;1 iost this amounted to a reac- Authority, state power development, and public housing. Nearly all these for slUl'riit . t the "invasions" of gas sta- plans were swept away by the Warren Harding presidential landslide ill a social s 1920; but when Smith again became governor in 1922, he brought Moses it, they 1 ort by the Regional Plan back with a renewed agenda. Moses became the architect of the state's COl11- blocks.ih Y), sponsored by the Russell prehensive ipark system, the coordinator of regional highways, and chief This.si s forecasts of continued cen- advocate of the state power authority. hIe thatj~il . 111 out their manufacturing Giving Moses the parks portfolio, Governor Smith expected his protege to mer oft};Q the periphery, RPNY's rail draw together the development of parks across the state. In a series of ed appr~~ cian, Thomas Adams, called reports, Moses gave him that much and more, He called upon Albany in York Stat. "reconcentration" of urban 1924 to lake a "unified and comprehensive" approach (which became his gram fort ,;aye the intellectual irnpri- ! mantra), enact a state council on parks, and provide for an executive secre- ing ons (the latest version of the tary (assuredly him) "LO insure the continuance of unified state park plan- \ sl '-Jar the tenements ning." There was no time to be lost. Burgeoning cities, from New York to ['gentrification; and Buffalo, needed protected watersheds for their aqueducts and hydropower; g~s.To reclaim the and, just as important, recreation grounds for families, children, and seniors. [?erry called for the (In this respect, Moses shared the reformers' concept of the city as an archi- into svelte picds-a- pelago of settlement areas, each with its own youth program.) For Gotham imew saw six-lane and its suburbs, Moses sketched a "Grand Circuit" drive, the equivalent of ornote abutting real the "town less highway," from the Bronx River Parkway reaching past n boosters, encour- Peekskill and circling Bear Mountain State Park, then back again via the ne can almost hear Palisades Interstate Parkway.
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