When Growth Management Fails, Build New Towns

18 April 2001 - 12:00am

Growth management is only slowing the eventual demise of the modern city. Richard Carson proposes starting over and offers his criteria for "New Towns."

Rich CarsonGrowth management -- that most aggressive form of land use planning being practiced in states like Oregon, Washington and Florida -- has proven to be an illusion for those of us who live in the growing metropolitan areas. The point of growth management is to create a rational and compact urban growth form -- using urban growth boundaries -- where we optimize our infrastructure costs and utilize our land more efficiently. Conversely, we preserve cost-efficient resource lands outside the boundary. That is why "sprawl" is basically inefficient.

Unfortunately, our practical experience is that over time today's metro-complexes are in the process of becoming urban ghettos. With growth management this process is simply occurring slower than in those places not practicing growth management. In other words, we have "managed" to slow the advent of the disease, but not cure it. Growth management cannot change the fact that overcrowding, traffic congestion and poor air quality is what we will end up with.

The Dying Citi-states

The primary problem with today's new approaches to land use planning (i.e., growth management, neo-traditional town planning, smart growth) is that they all politically accept the continued growth of the existing urban form. Certainly they try to contain it and to even redevelop it, but it is still like poking a stick at a Tyrannosaurus Rex. The dinosaur it is not manageable and will eventually eat you.

Quite frankly, it may be impossible to adapt a new development approach to the massive and dysfunctional metro-complexes. The history of human settlements is that when people get sick of a place, they leave it. Humanity has followed this pattern for 5,000 years. Certainly, we should prepare for the eventual demise and possible reconstruction of such areas. However, the truth is that the existing metro-complexes already have given up on vast areas where poverty, illiteracy, socio-economic disparity and hopelessness reign supreme. Such places are better bulldozed than allowed to be kept on life support.

The death of the citi-state will be mourned by some because of the perception it has given us a greater cultural appreciation of the fine arts. However, the truth is that the dark side of such places is not worth the miserable existence of the many at the expense of a few intellectuals or tourists. I would argue that Eugene, Oregon; Santa Fe, New Mexico and Austin, Texas are as culturally enriched as New York, Los Angeles and Chicago. The only difference is that these places are much smaller.

Some will also argue that ignoring the existing urbanization pattern is denying reality and is a worthless exercise. My response is that is never too late to create a totally new way of building cities.

Towards a New Model

There is a better approach! What is needed is an entirely new model. A new city built from the ground up. I suggest we first start with a clean slate. Eliminate the pre-condition that we fix the mess we have created in our existing cities. Let us test our theories on some less productive virgin landscape and see if the theories work and meet our objectives. We must first list out everything we want to happen in such a place. This includes the level of livability, ease of mobility, air and water quality, socio-economic equity, cultural diversity, and minimum and maximum densities.

So what are the characteristics of a New Town?

  • Limit the size of cities. No city over a certain size - let's say 100,000 people - would be allowed to expand geographically. Indeed, we may wish to set minimum and maximum densities within such areas. This may result in metropolitan areas eventually having no new growth.

  • The cities would be limited geographical by a fixed urban growth boundary and buffered from the next city by open space and large lot rural zoning.

  • The transit of the future should be more inter-city than intra-city. Changing the city size changes the need for local transit. Indeed most transit will be to get you from home to work - which will probably in a nearby city.

  • Instead of planning for a 20-year time horizon, we would plan for a permanent end state for all the following generations.

Cities, like eco-systems, have an inherent carrying capacity. It is the pathology of both size and density. It is an inverse relationship. Think of carrying capacity as a "span of control" over which people can manage the urban environment easily. However, once you lose the "span of control" the urban environment starts to manage its denizens.

Under the New Town model, those metropolitan areas that are greatly over the targeted population level should be considered for disaggregation. In other words, we may want to slowly dismantle them into smaller more manageable units. This could be done be defining existing edges and turning them into larger visible buffers. This New Town approach would mean some neighborhoods, people and places could reassert their local authority.

Some will laugh and call this the Mayberry model. Some will become angry because they will see the new town strategy as opening the floodgates and allowing humanity to escape the metropolis. But the fact is we have failed to deliver on the promise of growth management and our citizens demand a better alternative. So let's give them New Towns.


Richard Carson is an urban planner and a freelance journalist. He is also past director of planning for Metro (the Portland, Oregon regional government which represents one million people), past editor of the Oregon Planners' Journal and is currently a member of the mayor's Growth Management Committee in Portland. He can be reached at richcarson@home.com or through his Utopia website.

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New Towns

I agree and I have been working since 1947 around this subject. I moved to Israel in 1978 with the goal of making this idea a reality.

New Howardism

Although Mr. Carson's ideas are intriguing, they are not particularly orginial. Ebenezer Howard had the same ideas a century ago. It's not even tangential to New Urbanism, if that can even be considered "new". What is needed are new ways to intelligently continue our present paradigm, and not deny 5,000 years of history.

The dying Citistate?

The Citi-state is not dying, at least not in Colorado. Overcrowding is not really a problem, and our "ghettos" are on the rebound.

The conventional urban form does predate the modern society and economy, in that it relies on the street network as a system to generate contact, commerce, and culture, as opposed to assigning these functions of society to things like telecommunications, power centers, and shopping malls. However, the conventional urban form of center, satellite; streets and density is becoming popular again for a simple reason, it provides a level of satisfaction for the user--contact with other people, diversity, and dense urban forms reward people. And compact growth keeps the countryside accessible. The city, not the town, generates culture, availability of consumable goodes, excitement, and knowledge, which is why the cities expand while the countryside depopulates.

A city's virtue is that it doesn't need a master plan-- because a master plan can never anticipate the things that a population of people will create and invent when they are left to their own devices. A city, then, is really a machine to create random contact between people and their environment, which causes creativity and copresence to create a common culture that is both diverse and predictable.

We are finally becoming sophisticated enough to appreciate what we have had all along.

Flying cars and such...

Consider the unrealized concepts proposed by mankind ? the mile-high skyscraper, flying cars, the 900-passenger jumbo jet, reliable high-speed computers (okay, I added the last one!).

One can only hope that Mr. Carson is using hyperbole to make a point. If not, then we all need to quickly get our law degrees and pass the bar exam, for such a proposal would be a heyday for litigation.

The level of management Mr. Carson speaks of might work in nations with different governmental forms. A socialist form of government might be able to mandate such a policy, but can anyone imagine applying this anywhere in the US and not inviting legal exposure? Not likely.

Two of the examples used in Mr. Carson?s articles are "interesting" to say the least. Santa Fe (NM), long called "The City Different", has been a community that traces its roots back to 1609 -- nearly 400 years old! Austin is a relative "child" at 162 years old. The unique quality of both cities has suffered greatly in the past 15 years due to increased growth, managed or otherwise. Santa Fe?s charming square is in danger of becoming another collection of franchise retail. And anyone that works in Austin can tell you about the tremendous traffic problems. (It is no wonder that Mike Judge's movie "Office Space" was intended to look like it took place in Southern California, even though it was shot in Austin.)

But even with these challenges, new town development still pales in comparison to the real thing.

It is my hope that "concepts" like those suggested by Mr. Carson exist to merely get our attention, not our support.

Build New Towns??

Wow - I sure that fanciful notions of experimental, perfect, bucolic towns, not to mention the most extreme forms of top-down planning of the kind proposed by Mr. Carson were long, long dead . . . what is going here? I also thought the anti-sprawl movement was guided, or aligned with the principle that YOU CAN NOT FOREVER RUN AWAY FROM YOUR PROBLEMS. I hope Carson's opinions are not that popular with other planning professionals . . . please, no more future cities until you fix what we have, or at least show me a completely planned city that actually worked.

Resist the Utopian Impulse

The idea of new towns has been tried before in various forms and it doesn't work all that well, especially when the structure and organization of them is as rigid as proposed.

In the U.S., when I think about attempts to eliminate ghettos in the cities, what comes to mind is the disaster called urban renewal which attempted to completely start over in various areas of these cities. Today, most such attempts are viewed as failures.

In Britain, a concept of "new towns" was tried in the 1960s but has only had mixed success. They clearly did not prompt a major change in British living patterns.

Cities, despite all their problems, have a history and a sense of place that should not be destroyed. While the point is made that cities have been abandoned over the centuries, it should be noted that many cities were rebuilt in the same locations above the ruins that then existed.

You cannot create the "utopia" proposed in the op-ed. Several people and groups have tried over the centuries and it can't be done. No city will be perfect. For our heritage's sake, let's not bulldoze the great cities of our age, let's resist the "utopian impulse".

A Modest Proposal -- What Are Your New Town Goals?

Jonathan Swift, author and satirist, argues in "A Modest Proposal" (1729). that the Irish should eat their own children, as a drastic (although humorous and sarcastic) response to problems of overpopulation, economic distress, and famine in Ireland.

Mr. Carson is doing the same thing here. He's provided a tongue-in-cheek argument. We all know perfectly well that we will never abandon our cities to create new town. In fact, many of Planetizen's readers have provided a variety of excellent reasons why this isn't even particularly desirable.

Let's be honest: most seasoned planners have at one time or another fantasized about just starting over with a clean slate, where they can organize, zone, and plan the built environment as they would really like it to be -- absent of political bickering and overzealous citizen activists. A Sim-City for real.

Mr. Carson is an experienced and jaded urban planner. He's reflecting the feelings of many planners -- and making us think about our own assumptions.

Sure it's a little disengenuous, but it made us all think about it, discuss it, and lift the level of debate. It's useful to have "straw men" arguments like this.

At the same time, Mr. Carson proposes several characteristics for his vision of the utopian town. They aren't mine, necessarily, but they did make me wonder what mine would be -- and what I can do to make them more real in my own city.

Ha!

Friday afternoons are the perfect time in a planner's life for a provocative poke or two. Anything that helps us to take another hard look at our assumptions and approaches to dealing with the profoundly difficult challenges that face planning for vital urban places has got to be good. Or does it?

Mr. Carson's credentials led me to hope that he would share some deeper insight gained from his long and apparently productive career. But facile assertions of inescapable doom, combined with fabulously silly arguments about the cultural equivalence of Eugene and New York (Wow!), make clear that this piece is nothing more than an exercise in trivial self-gratification.

Instead of some brilliant probing that drills through the quagmire, we get surficial abrasion. Is this insult or injury?

Citi-state Regionalism

It's odd that Mr Carson hails from Portland, but exhibits little understanding of or confidence in its 2040 Regional Plan. Regionalism seems to be the wave of the future. And, of course, that bold statment cannot be made without some elaboration. What is Regionalism?

Regionalism is NOT giving up & moving elsewhere, as if this is possible, practical or desireable. Portland's Regional Plan looks 50 years ahead at metropolitan development with rose-coloured glasses, refusing to admit defeat in the lengthy process of building a better future, naysayers & ne'er-do-wells, notwithstanding.

The Regional Citi-state is the obvious course of developmental evolvement. We cannot nor need we pull up roots & build over, (mass popultation scale). Most infrastructural problems of traffic & population congestion can be ameliorated through "dispersal" of new development, according to the New Urbanist basic tenet of "Mixed-use".

Within every metropolitan area, there exists a thousand districts of single-purpose developments, (ALL housing or ALL employment, or ALL commercial retail, or ALL industrial). And, the unbearable transportation demand between these districts can be fundamentally reduced by development that compliments or diversifies their basic lack of uses, using existing infrastructure to complete the imbalanced nature of development.

Carson's statement that future transit will be inter-city as opposed to intra-city does NOT follow New Urbanist theories of mixed-use. Expecting people to commute in that fashion is absolutely ridiculous just as it is riduclous today. Regionalism creates jobs within a region so that jobless suburbanites have less need to commute.

I recognize his "build over" sentiment as pure Utopianism, perhaps affected by development-for-development's sake interests, but to my mind, we are living in Utopia, unrestored. Utopia is not elsewhere.

Richard Carson's New Towns

How exactly does one limit growth - deny in-migration, stop citizens and the private sector from moving/developing where they want? This smacks of too much control making for a very boring town indeed.

New Towns

Come on everybody, Rich Carson is just pulling your leg. He's a libertarian who believes that the great mythical "market" is all you need to create beautiful placfes.

And he's right. I mean, look at how beautiful American cities built under 20th century capitalism are when compared to those communistic Europeans. I would take an American strip commercial zone to any European square-I mean you have to get out of your car and walk in Europe. Horrors!

Build new Sprawl

Great idea! Lets save our degraded cities by promoting sprawl!

Bulldoze the Big Old Cities and Build New Towns?

Mr. Carson, you've gone way too far with your article. Are you suggesting that Paris, New York, Chicago, and other sublime cities be bulldozed in favour of building new towns? Certainly, there are many more people than a few intelectuals and tourists who would not want to see them go. Despite problems with urban decay and poverty, these cities are vibrant and exciting places to visit and live because of their cultural diversity and abundant urban amenities. It's just that one needs to make tradeoffs in a larger centre(congestion, for example), tradeoffs which many gladly accept.

Concerning your example of Austin, Texas as an example of new town development, do you really think it qualifies as a new town? It is an established city that was once sleepy until it revitalized what it had and attracted a lot of high tech companies. You are thus confusing revitalization with new town building.

You're idea for new towns is not new, in fact Alberta (Canada) built new resource-based towns in the 1960's. Today, these towns have hardly grown. Large corporations and talented employees flock to where the established cities are, with their numerous urban amenities and cultural diversity. Why do you think that it is so hard to attract good doctors, architects, computer engineers, or even planners, to smaller, less established communities?

Give me a break!

Mr. Carson, please tell me that you're kidding! That is the most rediculous suggestion since Le Corbusier's Radient City. As Andres Duany said "Amateurs accustomed to emulation made great places. It is the professionals of recent decades that have ruined our cities with their inventions." This quote is on Mr. Carson's own website.

He also quotes Jane Jacobs. He really needs to revisit "Death and Life" and quit daydreaming. As Mrs. Jacobs will tell you, cities are economic units, and they grow or stagnate due to economics, not some planner's master vision.

There are great places big and small. Just beacuse we haven't built any good ones lately doesn't mean we should give up on the concept of cities. I believe that's Portland's bold experiment, while not perfect, offers the best hope to managing growth in the future (without trying to fight reality.)

Build New Towns

That's all very well but who is going to mandate that? Will we say that you may not move to a city that has reached its capacity? Would that pass constitutional muster?

Build New Towns

Regarding Richard Carson's article advocating that we give up on fixing existing cities and concentrate on building brand new cities; you've got to be kidding. My recommendation to Mr. Carson is that he reread his Jane Jacobs. And pay attention this time.

I am fortunate enough to live in the same city that Jane Jacobs chose to settle in, Toronto, and my experience over the last twenty years in this city has been that it has gotten better and better as population and density have increased. It has become more culturally diverse and has fostered a much more vibrant public life. And I wouldn't trade it in for life in Mayberry for all the homemade jam in Aunt Bea's cupboard.

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The areas where we have severe blight and indications of more blight to come are basically the same as they ever were. How in the world are we ever going to move our community development selves into an alternative future that thinks differently about the challenges we face in our cities and low-income suburban and rural communities?