Can cities with decades, hundreds, or even thousands of years of history adapt to economic, population, and climate change? Can they renew themselves in the process? At the Innovative Metropolis conference organized by the Brookings Institution and Washington University in St. Louis, a few urban experts, Valente Souza, iQh; Alexandros Washburn, urban design chief, City of New York; and Seng Kuan, Sam Fox School, Washington University in St. Louis, explained the legacies that are shaping Mexico City, New York City, and Shanghai, three of the world’s biggest megalopolises, and the approaches they are taking to adapt, with varying degrees of success.
All cities have deep geographic, hydrologic, geological contexts, said Souza. Mexico City, set within a volcanic range, is seen by geologists as sitting upon a “great bowl of jello,” meaning it’s seismically insecure. Early settlers in Mexico City thousands of years ago knew the city’s terrain and natural characteristics, but modern Mexico City residents have forgotten them. “We have forgotten the memory of the space. The drawing has faded out. It needs to be redrawn.”
Part of that redrawing is finding out what’s really there now. Souza has been looking at population in relation to landscape and found that people are living on ravines and other landscapes best left for stormwater management. Water then is a key line that needs to be redrawn, in large part because the “mental image now is of a flooded city.” Drawing a new picture, “why not use water to maintain the landscape?” To maximize Mexico City’s water resources instead of piping it out of the city, Souza’s organization has been mapping flood zones and creating forests in those places. To date, they’ve sequestered 4,000 acres for “mini-forests within the city.”
Mexico City is already working with people who live on the ravines critical to stormwater management, providing them with educational materials about where they live and asking them to participate in creating master plans on the new ecological functions for the city. Ultimately, this means some will need to move.
Souza added that with all the real estate investment in Mexico City, it’s important for the environment to have value, too. “We have to give value to forests, water.” To accomplish this, he’s creating a “geographical database” with tons of real data on ecological functions to prove to both policymakers and locals that some undeveloped or newly green places have enormous financial value in themselves. “This is a different approach to dealing with nature.”
Growing while maintaining and even strengthening ecological function should be a priority in every city. It seems to be in New York City, which has been adding great new parks within the city and along its shoreline. Washburn said urban design has proven to be a useful approach for managing this process. Urban design is defined as a “set of tools to change cities, techniques to address the form and function of cities.” Urban design tools include rules, plans, and pilot projects. In practice, urban design works at the “confluence of finance, politics, and design.”
According to Washburn, a few urban designers have shaped the history of New York City, and their legacy provides a framework for how the city may adapt in the future. They include Frederick Law Olmsted, the founder of the profession of landscape architecture, who provided an “oasis” in the city, with his world-famous Central Park. Washburn said “when the city commissioners laid out the grid in 1811, they didn’t include a park.” There were simply spaces for recreation at the water’s edge, which were quickly taken up with shipping docks. By putting a park in the middle of the grid and creating a respite in the middle of the city, “Olmsted changed everything.”
The second is Robert Moses, who, in the beginning of his career, accomplished a lot to “un-crowd” the city, adding parks and playgrounds, albeit in a dictatorial manner. The third urban designer with outsized influence: Jane Jacobs, who “organized, confronted, and then met (but didn’t defeat) Moses.” She was an “advocate for the fine grain of neighborhood.” Together, these two “established top down and bottom up planning” process represented in the land-use planning framework NYC uses for all new projects. “Over 7 months, both Moses and Jacobs’ approaches shape the review process for every project.”
Today, the legacy of these three can be found in new projects like the High Line, a project Washburn got behind early. Washburn said Jacobs would have approved because it “preserves the light and air of the neighborhood,” while Olmsted would have “been pleased because it’s like one of his Rambles in Central Park.” With $100 million in public funds, the High Line park has brought in $2 billion in private sector investment (perhaps something Moses would have appreciated).
Washburn said NYC and other cities are now struggling with how to deal with environment: “Should it be protected from us or managed by us?” The answer may be moot, particularly given nature is now part of the city, and “we must adapt cities to climate change that has already occurred.” While the city is contemplating bold ideas like adding oyster reefs in the harbor to mitigate waves, thousands of acres of new wetlands, and monster-sized sea walls, there are also practical implications. “How do we create a legal framework for oyster-tecture? How do you do an environmental impact statement for that?”
Lastly, in Shanghai, Seng said the city managers are taking the “Robert Moses approach.” The city’s “hierarchical structure” came out of European planning traditions. To adapt to an exploding population, the city is undergoing an amazing expansion under the “1966 network plan,” which calls for a “new center, nine cities, and 66 new towns,” all within Shanghai. To adapt, the metro system, already the world’s largest, is just trying to keep up. It now has 510 kilometers of track serving 8 million users a day. Some $30 billion USD has been put in to effectively double the network.
Unfortunately, “Shanghai’s subway doesn’t actually complement the actual structure of the city.” Stations are far apart and far from population densities. The one-kilometer square blocks make navigating the city a challenge to begin with. Seng said Shanghai must further adapt to a changing city and growing population by updating its metro and other transportation system plans. But if the city does this, it will be with the Moses way.
Image credits: (1) Mexico City by satellite / Maps.com, (2) Mexico City slopes / The bicycle diaries. Symaniak, (3) High Line Chelsea Thicket / Guillaume Gaudet (4) Oystertecture in New York City / SCAPE, (5) Shanghai Metro expansion / The Transport Politic.