A Media History of the City
A media history of the city could take on any number of forms. The shape of this history would largely be determined by how we defined its key terms. How should “the city” be understood? Such a history could begin in ancient or pre-historical times, starting with the earliest human settlements and urban agglomerations. On the other hand, it would also be possible to select a single moment along this vast timeline and analyze this temporal snapshot to see how various media are intersecting with urban life. This history could even be a contemporary history of modern media practices and institutions and their role in the urban experience. The other key question is how “media” should be understood. What media should be included in our study? How inclusive or exclusive should our definition be? Depending on how expansive our definition is, our history could begin by looking at human settlements established in pre-literate societies where spoken language was the primary communication medium. Our history could also look at the development of alphabets, and the role of various writing media such as tablets, papyrus, and parchment in facilitating the construction and governance of cities. Our history could instead follow a traditional mass communication view of modern media. In contemporary New York City place names such as Radio City Music Hall and Times Square attest to the impact that media of mass communication has made in urban spaces.
In order to limit the scope of this essay, I will frame my response as a curriculum overview for an imagined undergraduate course on media and the city. Framing the response in this way provides a framework and rationale for defining the terms of our analysis and the range of history we can reasonably attempt. A typical U.S. undergraduate introductory course in media studies approaches its subject using the “big 5” traditional media: newspapers, magazines, film, radio, and TV. For the sake of this essay, and imagining a potential undergraduate course based on this subject, I will structure my response around these “big 5” traditional media. Also in following the structure of a typical undergraduate media course, the history I present will correspond to the history of mass communication in the United States. The history I offer here is mostly confined to the 20th century, and focuses on U.S. cities. As such, this imaginary course I am outlining could be called “History of U.S. media and urbanization.” In what follows, I offer five key moments in this “media history of the city,” with each moment corresponding to one of the big 5 traditional media. Each entry will offer some historical information on the development of that media form, and a case study that illustrates the intersection between media use and the life of city. Finally, I will offer a sixth moment and case study that accounts for more recent developments in digital media and technological convergence, as well as salient aspects of urban life in the 21st century metropolis.
Moment One: Penny Papers and Newsboys on Strike
Early colonial newspapers tended to be political in nature, what were called the “partisan press” as opposed to commercial papers. In the 1830s, technological developments associated with the industrial revolution allowed for new paper production practices. Expensive handmade paper could be replaced by cheaper mass produced paper. Before this change in production, newspapers cost about 5 cents to purchase, which was relatively expensive for the time. Therefore newspaper readers tended to be affluent. Using the less expensive production techniques, publishers could sell papers for as cheap as 1 cent. Thus the “penny press” or “penny papers” were born, and this is the moment when newspapers truly became a mass media. Newspaper publishers had long relied on subscription service for reliable purchases of their papers, but in the penny press era individual street sales became an important part of the business model as well. One of the major penny press papers was the New York Sun owned by Benjamin Day. Under Day’s stewardship, the Sun privileged accounts of the daily triumphs and travails of the human condition, what are now known as “human interest stories.”
The penny papers introduced many innovations that remain part of the newspaper industry today, including assigning “beat” reporters to cover special story topics such as crime, and shifting the economic basis for publishing from the support of political parties (as in the “partisan press” era) to the market. The penny press era gave rise to an increase in newspaper production with an emphasis on competitive, profitable papers. This economic environment set the stage for some of the most famous newspaper barons to enter the scene. For instance, Joseph Pulitzer bought the New York World, and William Randolph Hearst bought the New York Journal shortly thereafter. Pulitzer pushed for the use of maps and illustrations in his papers, so that immigrants who were not fluent in English could understand the stories. Both Pulitzer and Hearst used bold headlines and layouts to attract reader attention. These practices became emblematic of the yellow journalism period, a term that also connotes sensationalism and even unscrupulous journalistic standards. Pulitzer and Hearst papers did call for social reforms and drew attention to the poor living conditions of poor immigrants in the cities; however, the papers also embellished stories, fabricated interviews, and staged promotional stunts in order to increase reader interest and boost circulation. In 1895, a conflict began that would go on to boost both papers’ fortunes. The island of Cuba had been a colony of Spain since the arrival of Columbus, and in 1895 an insurrection began against Spanish rule that would become known as the Cuban War of Independence. At the time Hearst and Pulitzer were engaged in a war of their own: a circulation war. Hearst’s and Pulitzer’s papers used the conflict to sell papers and boost circulation, deriding Spain in headlines and calling for U.S. intervention. In 1898 the U.S. ship the Maine was sent to Cuba and exploded and sank in Havana harbor, with hundreds of sailors killed. The World and the Journal ran headlines like “Spanish Murderers” and “Remember the Maine,” and the Spanish-American War is still remembered as a prime example of propaganda in the U.S. media swaying public opinion in favor of war, even when facts were misrepresented or embellished.
Benjamin Day’s New York Sun did not offer a subscription service, and instead relied solely on individual street sales to make a profit. To better distribute his papers, Day placed a wanted ad seeking workers to sell the newspapers on the street. Day expected adult workers to respond to the ad, but he found instead that children inquired about the job instead. The first vendor he hired was 10 year old Irish immigrant who would take bundles of papers onto a street corner and shout out the most arresting headlines to get reader interest. Soon this became a new and pervasive method of selling newspapers on city streets. These newspaper vendors or “hawkers” were also called newsboys or paperboys, although girls were often found in their ranks as is evident in many of the photographs taken of children news vendors at the time. These children worked long hours, often through late nights and early mornings, and even sleeping on front stoops or in the street, something also attested to by photographs of the period. Vendors would buy bundles of newspapers from the publishers, and they were not refunded for unsold papers. In 1899, in the wake of the boost in circulation numbers precipitated by the Spanish-American War coverage, many publishers raised the price of newsboy bundles from 50 cents to 60 cents. In response, in July 1899, newsboys refused to sell Pulitzer and Hearst papers. Newsboys demonstrated in the thousands and broke up newspaper distribution in the streets. One gathering blocked off the Brooklyn Bridge, disrupting traffic across the East river as well as interrupting news circulation throughout the entire region. Pulitzer tried to hire adults to vend his newspapers but they were sympathetic to the newsboys’ plight and refused to defy the strike. He did hire men to break up newsboy demonstrations and to protect newspaper deliveries. The newsboys asked the public to not buy any newspapers until the cost of bundles was lowered and the strike was resolved. Eventually the publishers relented: although the cost of bundles was not decreased, the publishers agreed to buy back unsold papers from the newsboys. The strike ended in August 1899, two weeks after it had started.
The 1899 Newsboy Strike is a significant moment in the history of U.S. media, U.S. urban life, and U.S. labor relations. New York City was built by a great deal of immigrant labor, and many of these laborers were children. It is important to remember and acknowledge this important part of U.S. urban history. The 1899 strike was credited for inspiring similar newsboy strikes in Butte, Montana and Louisville, Kentucky. It is an important story in the history of labor law reform in the U.S., even though it is not as well-remembered as landmark events such as the Triangle Shirtwaist Factory fire. While the newsboy strike did not lead to the sort of immediate reforms that the Shirtwaist factory disaster did, it did impact the implementation of child labor laws in the city over the following decades. Furthermore this case illustrates the practices of distribution and circulation that newspapers relied on, as well as the political economy of the media and its relationship to national and global politics.
Moment Two: Muckraking Magazines and the Shame of the Cities
The modern magazine has decidedly “urban” roots. The word “magazine” originally referred to a storehouse for munitions. The first use of the term to refer to a publication was in 1731 by “The Gentleman’s Magazine” published in London. The publisher of “The Gentleman’s Magazine” used the pen name Sylvanus Urban, and this is what I meant when I said that magazines had “urban” roots. As with newspapers, developments of the industrial revolution such as conveyor systems and printing processes allowed for less expensive manufacturing practices, and therefore magazines could be sold cheaper and reach a wider audience. Another significant development was the Postal Act of 1879, which reduced the postal rates of magazines to the same price as newspapers, making the cost of a magazine subscription affordable for more Americans. Additionally, more and more jobs and people were moving from rural areas to cities. As increasing numbers of immigrants came together in urban cores, national magazines helped facilitate the formation of national identities as opposed to local or regional identity. Relatedly, the increase in the number of dime stores, drug stores, and department stores created new venues for consumer items, and magazines offered new venues for advertising these items. Ladies’ Home Journal was known for running the latest consumer advertisements, and became the first magazine to reach a subscription base of one million customers, reflecting the growth of the female consumer base.
In addition to sustaining and reflecting the growing consumer economy in the country, magazines also played an important role in social reform movements. Jane Addams reportedly first read about the settlement house movement from a magazine article (possibly from an article in Century magazine). With her interest piqued by the article, Addams and a friend soon travelled to London to visit the first settlement house, Toynbee Hall. The settlement house movement advocated the establishment of “settlement houses” in poor areas where middle class volunteers would come and live, with the goal of alleviating conditions of poverty and creating solidarity among the social classes. Two years after visiting Toynbee Hall Addams opened the first U.S. settlement house, Hull House in Chicago. Addams also wrote articles about the settlement house movement for magazines such as Ladies’ Home Journal and McClure’s. Another important role of magazines in social reform movements was related to photojournalism. Magazines had the ability to reproduce high quality photographs, giving them a visual edge against other media of the day. In the late 1880s an emigrant to the U.S. named Jacob Riis became shocked at the living conditions in the New York City slums and purchased a detective camera to document life in these areas. Riis exhibited his photographs as part of a public lecture presentation called “The Other Half: How it Lives and Dies in New York.” The lectures became popular and Riis wrote an article based on his lectures for Scribner’s Magazine. His project was eventually published as a book.
The aforementioned McClure’s magazine was a hotbed of reform-minded journalism at the turn of the 20th century. At the end of the 1800s the magazine had published exposes on the working conditions of miners and corporate practices of the Standard Oil Company. In 1901 journalist Lincoln Steffens published the first article in a series on corruption in U.S. cities. Steffens first went to St. Louis and reported on the machinations of the local political machine. Next he went to Minneapolis, and found the mayor and police chief colluding to take bribes for local houses of prostitution. Then he went to Pittsburgh (Pittsburg at the time), writing that “if the environment of Pittsburg is hell with the lid off, the political scene in the city is hell with the lid on.” The final entries in the series were based on visits to Philadelphia, Chicago, and New York. The series was eventually published in book form in 1904, titled The Shame of the Cities. The articles made Steffens a national celebrity and inspired a trend of similar expose articles in magazines, including Cosmopolitan’s “The Treason of the Senate”. Steffen’s magazine articles became icons of the muckraker movement, so called by president Roosevelt because they climbed through society’s much to cover the stories. The muckraking journalists are an important part of U.S. media history, and the social reform movements are an important part of U.S. urban history.
Moment Three: Movie Palaces and a Tale of One City
As with newspapers and magazines, the development of motion pictures was closely tied to technological and social developments occurring as part of the industrial revolution. Developments in celluloid film, electric lighting, and the mechanical gears to turn film reels all contributed to technological underpinnings of film as a mass media. In France the Lumiere brothers invented one of the earliest film cameras, and the first film they shot was of workers leaving their family factory in Lyon. In the U.S., Thomas Edison developed the kinetograph, and shortly thereafter established an association of film and technology producers called the Trust. The Trust was a consortium of U.S. and French producers who agreed to pool film technology patents. Edison had also made an arrangement with George Eastman to make the Trust the exclusive recipient of Eastman’s motion picture film stock. To escape the control of the Trust, independent film producers left the traditional motion picture centers of New York and New Jersey. They went west, eventually settling in Southern California which offered cheap labor, ample space, and a mild climate that allowed for year-round location shooting. Southern California became the center of the U.S. film industry, and Hollywood became a toponym for the U.S. studio system (and remains metonymic of that industry today). The Hollywood studio system was built on vertical integration, which meant ownership of every means of the movie production process. This included production (everything involved in making a movie), distribution (getting movies to theaters), and exhibition (the process of screening the movies). Edison’s Trust tried to get the edge on exhibition by controlling the flow of films to theaters. The Hollywood studios instead decided to buy theaters themselves. The Edison Trust was eventually ended due to trade violations, and the Hollywood studios controlled every part of movie production and circulation. Paramount studios alone owned more than 300 theaters. During this period of film exhibition, movie studies built single-screen movie palaces, often ornate architectural achievements that offered a more hospitable viewing environment. Some of the most ornate and expansive movie palaces were built in Chicago. The architectural firm of Balaban and Kurtz designed many of the most famous, including the landmark Chicago Theatre (originally called the Balaban & Kurtz Chicago Theater). Other Chicago theaters built by the firm included the Oriental, the Riviera, and the Uptown theaters. The Uptown theater was the largest movie palace built in the United States.
In 1906 of a group of Chicago officials, designers, and business interests met to discuss the various problems facing the city. The Columbia Exposition a few years earlier had been received as a great success, but now problems of overcrowding, congestion, and the growth of manufacturing in the city were causing concern. This group of stakeholders met over a period of 30 months, and in 1909 they finalized their agreed-upon plan. The Chicago Plan proposed sweeping improvements to the city including rehabilitating the waterfront, redirecting railroad traffic in the city, and redesigning streets to permit better flow in and out of the business district. The mayor signed off on the proposal and then ordered a massive public relations campaign to promote the plan. Informative lectures explaining the plan were held throughout the city, articles and editorials were published in the newspapers, and the proposals were even summarized into a textbook that was taught in city schools, and a generation of Chicago school children grew up learning the values of the Chicago Plan. Also produced as part of this campaign was a two reel film titled A Tale of One City. This film was screened in city movie theaters continuously as part of the vigorous PR effort. Communication scholar James Hay has written about the role of the film in promoting the Chicago Plan as a significant moment in the history of urban renewal projects. The role of the film’s exhibition in the promotional campaign demonstrates the significance of the networks of film distribution and exhibition in reaching a mass audience, but also how the architectural design and location of downtown theaters in the city center made movie theaters important sites for engaging the public and shaping the vision of future urban development.
The Paramount decision of 1948 ended vertical integration and required studios to give up their theaters. This ended the era of studio control, but opened up new venues for film screening such as art houses that exhibited foreign films and documentaries, as well as hundreds of drive-in movie theaters for the millions of filmgoers who now had automobiles. As Americans moved to the suburbs, the movies did, too, building new forms of theaters in multiplexes and then megaplexes. While industry expressions such as “blockbuster” harken back to the role of downtown theaters in film exhibition (the term refers to patrons lined up “around the block” to get into a movie theater), most of the movie palaces have been repurposed, disused, or destroyed. Methods of film distribution and exhibition have significantly changed, and the downtown theaters and movie palaces have been largely replaced by suburban multiplexes. The example of A Tale of One City shows, however, that for a time downtown movie theaters played an integral part in the public life of the city.
Moment Four: Radio Remotes and Mediated Urban Nightlife
The groundwork of popular broadcast radio was being established during the late 1800s. Developments in telegraphy and the theoretical proof of electromagnetic waves were among the chief developments in this early history of the medium. The rise of the new medium of the airwaves was soon reflected in the built form of the U.S. metropolis, which was also turning increasingly skyward. By the 1920s and 30s radio broadcasters were transmitting from the Metropolitan Life building in Manhattan, and the Chrysler and Empire State buildings were designed and built with spires to serve as antennas for broadcasting radio transmissions.
In 1923 a nightclub called the Cotton Club opened in the Harlem neighborhood of New York. The Cotton Club was a whites-only establishment, even though the club featured many of the premiere African American performers of the time. In 1927 Duke Ellington and his band the Washingtonians opened at the Cotton Club. Not long after, a Manhattan-based radio station began broadcasting Ellington’s performances live from the Cotton Club. Scholar Tim Wall has written about the Ellington remotes (the radio industry term for these live, on-location broadcasts) as occurring during a moment of transition for both radio and jazz. The technological, organizational, and cultural futures for the new medium were still being explored and negotiation. The broadcasting of jazz music was significant during this period as well. In 1929, radio network WABC began broadcasting the Ellington performances. WABC broadcast nationally, so now Ellington was being transmitted coast-to-coast. As Wall argues, the national broadcasting of jazz music represented the intrusion of urban life and culture into the country. In 1930 another radio network picked up the Ellington broadcasts, and now the performances were heard on the flagship stations of NBC’s Red and Blue networks. These broadcasts grew Ellington’s fame, and he recorded more than a hundred compositions during this period. The Ellington broadcasts represent a significant moment in the regulatory history of radio, but also the attempts of the young medium to establish a cultural role for its programming. The case of the Ellington Cotton Club remotes also represents how urban culture and performance, and especially African American culture, was being mediated through the shifting systems of national radio networks.
Moment Five: Sitcom Suburbs and the Urban Crisis
Television truly became a mass medium in the years following World War II. Housing subsidies and entrepreneurial real estate developments privileged private suburban construction. Many Americans left urban centers to move to the suburbs, which had a lower tax base. Home ownership doubled between 1945 and 1950. As Americans left cities, and therefore also left the downtown movie theaters, music halls, and other urban venues of recreation and entertainment, radio became a cheap alternative to the movies. The years 1948 and 1949 saw peak radio listenership. After that, television replaced radio as the dominant medium in the home.
In addition to the role of housing policies and subsidies in spurring suburban development, there were also many discriminatory housing policies designed to keep U.S. minorities from moving into suburban communities. This practice has been referred to as American apartheid, and is one of the driving factors of the “urban crisis” that developed in U.S. urban life and discourse during this period. The scholar Dolores Hayden has used the phrase “sitcom suburbs” to refer to the homogenous developments that were also depicted in many of the nationally popular sitcoms during this period. One early flare up of these tensions happened in the Los Angeles area. In 1965, California voters passed a proposition that effectively repealed a fair housing act designed to alleviate discriminatory policies that prevented black and Mexican Americans from buying and renting in certain areas. Shortly thereafter, riots began in the Watts district and lasted for 5 days. More riots occurred in U.S. cities in 1967, and again in April 1968 following the assassination of Martin Luther King Jr. In each of these cases, the U.S. news media broadcast TV images that have become iconic of these riots and the overall “urban crisis” that came to dominate discourses on U.S. cities for decades.
Following the riots President Johnson appointed a special commission to investigate the causes of the unrest, and suggest how to prevent further unrest. The Kerner Commission detailed several factors that contributed to the urban riots, including explicit and implicit racism and housing discrimination. The commission also called attention to the news media for coverage that misrepresented facts of life in these cities and contributed to a deepening of divisions between white and black Americans. The Kerner Commission’s concerns were echoed by media theorist George Gerbner in his cultivation theory of television, which posits that increased exposure to violent TV programming cultivates a worldview in the viewer in which they perceive reality to be more dangerous than it really is. This period of urban fear and flight, the move to fortified homes and gated communities, has analogous developments in media coverage and development up to today.
Moment Six: Oppa Gangnam Style
Our history so far has taken us from 1899 to 1968. In this last section, let us catch up on some of the developments that occurred in the last 60 years or so. Developments in microprocessor technology led to a computer revolution. Beginning in the 1980s, home computers became more popular and were predicted to revolutionize daily life. Developments in graphical user interfaces allowed everyday, non-technical users to approach computers. In the late 1960s the U.S. defense department began researching a redundant communication system that could remain intact following a nuclear attack. The project. ARPAnet, eventually developed into the Internet. Web browsers and HTML, such as Tim Berners-Lee’s “worldwideweb” launched in 1990, have enabled the Internet to become a mass medium. The computer revolution has also lead to unprecedented technological convergence. Computers connected to the internet have access to the full array of media content. Developments in smartphone technology have changed what was once merely a phone in a mobile device and site of media convergence, and increasingly the favorite device for media consumption and production.
On December 21, 2012, a milestone was reached. The music video for Psy’s “Gangnam Style” became the first video on YouTube to receive one billion views. The case of Gangnam Style can tell us a lot about the state of mass media industries, as well as the state of cities, in our present moment. Psy is a K-Pop musical act, which stands for “Korean Pop,” a genre originating in South Korea. His global popularity points to the importance of transnational media flows in the contemporary media environment. For instance, the increasing importance of the Chinese box office market for the Hollywood studio system. Also, the fact that his popularity spread globally via the Internet indicates the significance of media convergence, as well as how digital platforms for media circulation have upset the traditional forms of media dissemination, as well as changed our metrics for gauging media success (i.e. YouTube views versus box office, Nielsen ratings, or circulation numbers, etc.).
Gangnam Style also tells us a lot about cities in the early 21st century. The title of Psy’s song refers to the Gangnam district in Seoul, South Korea. The Gangnam district is known for its affluence, and is a hip and trendy neighborhood. This association, and the apparently mocking portrayal of lavish lifestyles in the music video, have led some commentators to interpret the song as a satirical and subversive critique of conspicuous consumption. It should be noted that Psy’s own comments about the meaning of the song do not support these interpretations. Regardless, the Gangnam Style example can help illustrate the valorization of cities that has been a trend of post-industrial economics and post-modern cultural practices. In the 1970s New York City went through a fiscal crisis. City services were sparse, the city government almost went broke, and crime and visible disorder in the city reached peak levels. As part of the city’s recovery and repositioning, the I ❤ (love) NY branding campaign appeared. This campaign has remained hugely popular, and is representative of a postmodern consumption of the symbolic capital of cities. Another salient example would be the tote bags sold by American Apparel that just list names of global cities (Madrid, Tokyo, London, etc.). These cultural products, and the Gangnam Style song, are indicative of a revanchist return of capital to city centers. These examples, and indeed neighborhoods such as Seoul’s Gangnam, also point to the role of gentrification as a global urban strategy for development. In this way, Gangnam Style can serve as a vehicle for addressing some of the most pressing issues facing urban citizens today.
I’ve recently returned from London where I attended a workshop on Urban Change and Moving Images hosted by the Birkbeck Institute for the Moving Image. It was intellectually gratifying to engage with scholars of film, media, and cities over several days, as well as personally refreshing to indulge my lifelong passion for cinema. In addition to the screening sessions in the BIMI cinema, we also enjoyed multiple sojourns across the city to tour historic cinema sites and contemporary production locations. There was also a “mediated city” walking tour, particularly relevant to my research interests, that highlighted various media and communication infrastructure embedded in the urban environment. I relished the opportunity to discuss film and visual culture with scholars and colleagues, and also to share perspectives on urban change and space/place between London and Pittsburgh.
One of the Pitt film students presented on skating spaces in Philadelphia and London, so after the workshop the doctoral students made a pilgrimage to the Southbank skateboard mecca. The Southbank skate park is notable for its decades-long history as part of London’s urban fabric, as a locus for urban art forms, and also as an example of successful opposition to redevelopment. In 2013 the Long Live Southbank coalition successfully prevented a redesign that would’ve removed the extant skating space. It’s a rare example of anti-redevelopment victory (similar campaigns against the redevelopment of Love plaza in Philly were not successful), and raises significant questions about the various factors affecting such movements in cities around the world. The iconic 5 Pointz mural space in Queens possessed at least as much claim to cultural and historic significance as Southbank, yet these claims were challenged in court and ultimately the space was demolished.
It was a great trip and a much needed rejuvenating jolt of creative energy as I begin working on my dissertation project in earnest. The only downside is that I’ve had to reevaluate and overhaul my current research projects in light of the insightful feedback and innovative scholarship offered during the workshop. In addition to critical theories of film and visual culture my major takeaways from the event included ways of historicizing and theorizing media infrastructure in urban space, perspectives on the role of film in mediating experiences of space and place, and new (to me, at least) models of participatory research praxis. It can be tough coming back to Pittsburgh after spending some time in a such a rich and endlessly fascinating city as London, yet trips like these are a reminder of the global flows and phenomenons of development that can be seen manifesting in cities around the world, and a realization of the fecund opportunities for research and exploration waiting to be actualized. And, of course, it’s always good to come home.
This essay was originally written as part of my PhD comprehensive examinations. It was written to address connections between theories of the public sphere and concerns about public space, and to conceptualize the urban environment as a public realm.
Questions of space have always been implicated with the concept of the public sphere, but the idea of space has been conceptualized and applied in various ways within this context. Carragee’s challenge for scholars to address the nexus between public sphere theory and the study of public space has a solid foundation in the pertinent implications for civic life, attempts to connect academic perspectives and planning disciplines, and his own analysis of the impact of urban design on the character of public interaction. I agree with Carragee’s assertion that a vital public sphere requires vital public spaces. I am less inclined to agree with his claim that communication scholars have been silent on the issue, as there have been moves to address the communicative implications of the built environment through approaches such as material rhetoric. Nevertheless, it is worthwhile to consider how scholars of communication and other fields have approached this nexus, and how this line of inquiry might be extended.
To properly address this question about the relationship between public space and the public sphere it is helpful to define our terms. Both “public space” and “public sphere” have been used by different actors to signify differing meanings. The Habermasian formulation of the public sphere posited a novel form of social interaction facilitated by a network of institutions comprised by physical locations and mediated discourses. Following this model, scholars have understood the public sphere as a discursive space rooted in place-based communication as well as mediated exchanges. Catherine Squires has defined the public sphere as “a set of physical and mediated spaces” in which people come together to identify, express, and deliberate interests of common concern. Nancy Fraser has characterized the public sphere as “a theater” for social interaction where political activity is actualized through the medium of speech. The public sphere can also be understood as a particular kind of relationship among participants. This relationship is mediated by these historical forms of sociability enacted at specific points in space and time. Kurt Iveson refers to public spheres as “social imaginaries” that are always in the process of being formed. The public sphere has also been understood procedurally (or processually), as a normative ideal founded on a set of principles intended to guide interaction.
The meaning of “public space” may seem obvious, but this term too has been conceptualized in a variety of ways. Notions of “public space” can be rooted in the physical characteristics of a location, the institutional structures and policies affecting a place, or the types of uses and activities undertaken in the space. Seyla Benhabib offers a procedural definition of public space. Understood procedurally, “public space” is any space that, through public address at a particular time, is transformed as a site of political action through speech and persuasion. In Benhabib’s formulation, “public space” is not merely “open” space, or physical, absolute, geographical space. More to the point, public space is never merely space in this physical sense. This represents an approach to public space that contrasts with Carragee’s view of public space as material, empirical, and concrete, as opposed to the public sphere which he sees as more conceptual and virtual. In Benhabib’s procedural definition these realms are not so clearly distinguished from one another.
This essay will further explore influential notions of public space, the public sphere, and their relationship to one another. The first section will review significant and influential approaches to this nexus as represented by three prominent theorists. The second section looks at how the contemporary city has figured as a key referent in discussion of public space and the public sphere. The third section considers how the introduction of networked communication technologies has complicated understandings this relationship. Finally, I conclude with some contemporary issues facing work in this area.
Three Models of the Public Realm: Arendt, Habermas, Sennett
Hannah Arendt was a political theorist who wrote about power, authority, totalitarianism, and democracy. In one of her best known and most influential works, “The Human Condition,” she surveyed different conceptions and enactments of human activity beginning in ancient societies. The second section of this book is dedicated to “the private and public realms.” According to Arendt, life in ancient Greek society was divided between the private realm and the public realm. The private realm was the sphere of the household, and the public realm was the site of “action”. Activity in the private realm was preoccupied with bodily necessities, whereas the public realm was free of these necessities and in which one could distinguish oneself through great works and deeds. Arendt further proposes a dichotomy of human life based on the concepts of “zoe” and “bios”. Both words are etymologically linked to mean “life,” but Arendt is distinguishing human activity into two modes: animalistic (zoe) and humanistic (bios). This distinction between zoe and bios is connected to Arendt’s notion of life in the market versus public space, which she also refers to as the private realm (oikos) and the public realm (polis). Arendt considers the market an impoverished place where subjects are treated as animals, mere consumers driven to satisfy bodily and selfish needs. In the context of the oikos, one’s human identity and individuality is of no importance: in order to purchase a commodity, you need only pay the appropriate price, regardless of who you are. In the public realm, by contrast, the individual identity of each subject does acquire prominence. Through public discussion subjects or speakers are recognized as unique human beings who are inexchangeable with anyone else. Without language, human beings live on the level of “laboring animals,” merely concerned with continuing their lives. Through the medium of linguistic communication, humans open themselves up to the existence of others as well as the existence of a world that is shared with others. This then is the key idea in Arendt’s distinction between the private and public realms: people live privately as animals, and as humans only in public. Arendt valorizes the types of relations in ancient cities such as Athens, but she distinguishes between the built environment and the polis. She says that the polis, properly understood, does not refer to the physical city-state but to the relations that emerge from acting and speaking together, regardless of where the participants are. “Not Athens, but Athenians, were the polis.”
Jurgen Habermas defined the public sphere as “the sphere of private individuals come together as a public.” Similar to Arendt, he also considers this “public” relation as rooted in and a consequence of discourse and communication. Habermas’ notion of the public sphere is based on an empirical study of voluntary social associations and literary practices that emerged in Europe in the 18th century. The emergence of a “debating public” and an ethos of local governance were tied to the development of “provincial urban” institutions. These included coffee houses, salons, and theaters. Habermas’ study of the bourgeois public sphere is not only an account of specific historical phenomena, it also represents a normative ideal for rational-critical debate and deliberative politics. As such, Habermas’ theory has been interpreted as distinctly aspatial, not concerned with physical spaces but rather only an abstract discursive space. Several critics have argued that in order for Habermas’ theory to function as both a historical social explanation and a normative political idea, as his study proposes, it must be founded in an understanding of situated contexts of specific communities.
Richard Sennett is an urban sociologist who has written extensively on city design, public life, and civic engagement. His first book, “The Uses of Disorder,” argued that excessively ordered environments stifle personal development, and that people who live in such environments end up with overly rigid worldviews and insufficiently developed political consciousness. Sennett calls for practices of city design that allow for unpredictability, anarchy, and creative disorder that will foster adults better equipped to confront the complexities of life. In “The Conscience of the Eye” Sennett suggests that the built forms of modern cities are bland and neutralized spaces that diminish contact and wall people off from encounters with the Other. His remedy for this condition is a creative art of exposure to others and city life that should instill an appreciation for and empathy with difference. “A city,” Sennett says, “should be a school for learning to live a centered life.” Sennett’s book “The Fall of Public Man” outlines the decline of public life since the 18th century. In the 18th century, Sennett argues, public and private space were more clearly delineated than today. The disappearance of public space in the 20th century is attributed to a rise in intimacy and narcissism associated with industrial capitalism. In an essay titled “The Public Realm,” Sennett situates his approach to public life in relation to Arendt and Habermas. Sennett describes Arendt’s model of the public realm as inherently political and based on public deliberation in which participants discard their private interests. He calls Arendt the champion of the urban center “par excellence,” as the population density of urban centers provides the condition of anonymity that he sees as central to Arendt’s ideal. Sennett considers Habermas less interested in place than Arendt, as his theory includes mass produced texts such as newspapers as sites for the public sphere. For Habermas, Sennett states, the public realm is “any medium, occasion, or event” that facilitates free communication among strangers. Regarding his own approach, Sennett defines the public realm as “a place where strangers can come together.” He emphasizes that the public realm is a place, traditionally understood as a location on the ground, but Sennett states that developments in communication technologies have challenged this sense of place. Today “cyberspace” can function as a public realm as much as any physical place. Sennett also argues that “the public realm is a process.” As is evident in the arguments from his books summarized above, Sennett believes that shared spaces that accommodate unplanned and unmanaged encounters between strangers are beneficial for personal and social development. His emphasis on incompleteness and process, as opposed to fixity and determination, recalls Chantal Mouffe’s concept of agonistic Pluralism. Mouffe challenges the ideal espoused by Habermas that the deliberative ideal should be consensus reached by rational individuals. She argues that for freedom to exist the intrusion of conflict must be allowed for. The democratic process, Mouffe says, should provide an arena for the emergence of conflict and difference. Similarly Sennett says that daily experience doesn’t register much without “disruptive drama.”
The Modern City as Public Realm
In her book “Justice and Political Difference,” political theorist Iris Marion Young writes of city life as a normative ideal for communicative and political interaction. Young states that urbanity must be understood as an inherent aspect of life in advanced industrial societies, and that the material of our environment and structures available to us presuppose the forms of interactions that occur in these spaces. By “city life” Young refers to a type of social relation that she refers to as “a relation among strangers.” Urban experience, and in particular urban spaces, provide ideal conditions for the exposure to difference lives that a politics of difference should be predicated on. Young states that public spaces are crucial for open communicative democracy.
In “City of Rhetoric,” rhetorical scholar David Fleming argues that the city is the ideal context for the revitalization of the public sphere. He proposes an ideal space of relation that is between the intimacy of friends and family, on the one hand, and the mutual suspicion of strangers on the other. Fleming argues that the built environment and public space of the city is perfectly situated between users, relating and separating them at the same.
Don Mitchell has written about the “disappearance of public space” in the modern city. In a similar vein to influential critiques of the Habermasian public sphere, Mitchell states that the ideal of public space “open to all” has never been an existing state of affairs, but the ideal of public space circulates to powerful effect. For instance, Mitchell says, the circulation of the “open” public space ideal has served as a rallying call for successive waves of political movements to utilize space for activism and inclusionary ends.
Mediated Spaces and Mediated Spheres
Since Habermas’ formulation the idea of the public sphere has included elements of mediation. Habermas directly implicates the mass media in “The Structural Transformation,” citing the role of literature and the press in establishing the bourgeois public sphere, and the impact of television and other commercial mass media in diminishing the public sphere. The advent of the World Wide Web in the 1990s spawned enthusiasm from some regarding the deliberative and participatory potential of the medium. To some, the Internet seemed to realize all the ideals of Habermas’ public sphere. It was universal, non-hierarchical, based on uncoerced communication, and enabled public opinion formation based on voluntary deliberation. By these principles, and many others, the Internet looked like the realization of the ideal speech situation. Iveson suggests that the procedural understanding of public space allows various media to be understood as “public spaces” because they facilitate the formation of publics. Other scholars have considered media as new “spaces” for interaction. Sheller and Urry have compared new media to Arendt’s “space of appearances,” suggesting that in the digital age this “space” may be a “screen” on which public matters appear.
Still other scholars have voiced opposing accounts of the relationship between virtual spaces and the ideals of the public sphere. Don Mitchell has argued that the Internet can never meet or surpass the street as a public space, saying the infrastructure of the medium precludes certain uses and political opportunities. Public space remains crucial because it makes it possible for disadvantaged groups to occupy the space in a way that is precluded in virtual space. This space is especially important for homeless people because it is also a space to be and live in; a space for living rather than just visibilization. Iris Marion Young also addresses the distinction between physical space and virtual space with her concept of “embodied public space.” She says that media can facilitate public address and formation, and in this sense is not dependent on physical space. To the extent that public space is shrinking, or that individuals are withdrawing from public space, there is a democratic crisis. She uses the term “embodied public space” to refer to streets, squares, plazas, parks, and other physical spaces of the built environment that she deems crucial to allowing access to anyone and enabling encounters with difference. These spaces allow varieties of public interaction that are fundamental to her notion of city life as a normative ideal.
Jodi Dean has persistently criticized the “inclusionary ideal” promoted by the internet as an ideology of technocracy that she calls “communicative capitalism.” Dean’s article “Why the Net is Not a Public Sphere” challenges claims that the Internet can enable the ideals of the public sphere. In the public sphere ideal, communicative exchange is supposed to provide the basis for real political action. Under conditions of communicative capitalism, these exchanges function merely as message circulation rather than acclamations to be responded to. Political theorist Robert Putnam posited a decline of social capital in U.S. communities since 1950 in his book “Bowling Alone.” Putnam cites evidence of civic decline indicated by decreased voter turnout, public meeting attendance, and committee participation. The book’s title refers to the fact that while the number of Americans who bowl has increased in past decades, the number of people who participate in bowling leagues has declined. He attributes this fall in social capital to the “individualizing” of leisure time enabled by television and the Internet. Sherry Turkle has similarly argued for a technologically-promoted decline of physical proximity and interaction in the book “Alone Together.” Iveson has responded to such criticisms by arguing that the “stage” and “screen” (or “print” and “polis”) should not be seen as mutually exclusive arenas. Rather, he points to examples where movements of co-present interaction were facilitated through, managed by, or arranged around mediated forms of interaction.
There are several areas where continued research into the relationship between public space and the public sphere could be productive. First, it is important to consider how networked technology and mediated communication have changed the use of public space. Have the dispersed networks of power, access, and participation diminished the potency of public space for realizing political agency? Are these changes reversing Arendt’s formulation of the public and private realms? Has the logic of the market short circuited the function of the polis? Have new uses of public space emerged, and have traditional uses disappeared? It is now common for bodies to occupy physical space while their gaze and consciousness are directed not at their environment but at their various devices. How does this change our understanding of and approach to public and shared spaces? What does mean in relation to Mitchell and Young’s arguments about the role of “embodied public space”? In light of pervasive mediation in daily life it is important to affirm the fundamental importance of physical locations as public space.
Secondly, it is important not just to consider physical and virtual space in a dichotomous relationship, but also how they interrelate. How are digital technologies and mediated communication intersecting with the use of public space, and vice versa? To be clear, the phenomena at the core of this question are not new. Habermas’ model of the bourgeois public sphere concerns the relation between mass media and association in public space. More recently, the political uprisings collectively referred to as the “Arab Spring” brought attention to this issue. After social media and text messaging were use to organize demonstrations in Cairo, Egypt that eventually led to the removal of president Mubarak, pundits and media theorists began referring to this social movement as the “Twitter revolution.” Again, it is important to differentiate between the means of communication used to exchange information and organize bodies, and the site of political protest as represented in this case by Tahrir Square.
Finally, the implementation of information technology into the built environment is raising questions about the role of technologies in public space and civic life. In a November 2016 article, urban media scholar Shannon Mattern considered this issue in relation to the implementation and subsequent shuttering of the LinkNYC terminals in New York City. The LinkNYC initiative involved replacing telephone booths throughout the sidewalks of Manhattan with kiosks that provided access to electricity and wireless internet service. The city government promoted the terminals as places where tourists could access maps and online information and New Yorkers could charge their cell phones. The resultant “misuse” of these terminals, exemplified by people using the service for watching pornography or illicitly downloading media, resulted in the program being suspended indefinitely. Mattern uses this example to argue the importance of “vital spaces of information exchange” in our public spaces. She suggests that ideologies of “data solutionism” have influenced planning commissions to the detriment of small, local, and analog data perspectives that she considers essential to urban life. Mattern encourages city planning boards and project committees to include librarians and archivists in their ranks in the interest of such spaces of information exchange. At stake, Mattern argues, is the nature and well-being of our democracy.
These are just a few of the issues and questions that I think should inform future research into the relationship between public space and the public sphere. My own work is informed by these questions, and my interest in “smart city” policies and practices of implementation seeks to extend and challenge the conceptual zones outlined in this essay. Related questions explored in my research include: changing conceptions of public and private infrastructure; shifting models of civic engagement; and the predominance of market rationalities and discourses in (re)shaping the built environment. These questions are likely to only increase in prominence in the foreseeable future, and unforeseen developments are always arising. The essential questions of public space and the public sphere, however, will remain of crucial importance in our increasingly interconnected collective lives.
I used to live one street over from the Penn Plaza apartments, one of the last affordable housing complexes in Pittsburgh’s East Liberty neighborhood. The other low income rental units and high rise housing towers, built as part of sweeping urban renewal projects starting in the 1960s, have all been demolished and replaced with market-rate apartments and retail space. In the summer of 2015, the 200+ residents of Penn Plaza received notices that the property owners had sold the land for redevelopment, and giving tenants 90 days to vacate the premises. Following uproar from tenants and other community members who were shocked at the manner in which this decision was made and communicated, the city intervened to delay both the evictions and the demolition (the second of the two buildings is still standing, and people still living there have until March to relocate).
The developer’s plans for the Penn Plaza space was finally revealed this past summer: new high-end rental units and businesses including a Whole Foods grocery store. Whole Foods has earned ire for its expensive and sometimes outlandish offerings, is identified with an affluent-white consumer ethos, and has become iconic of gentrifying development (see the season-long gentrification arc on South Park in which the arrival of Whole Foods in a formerly divested neighborhood is treated as the catalyst for a demographic shift). The announcement that the Penn Plaza site was to house a new Whole Foods carried a particularly bitter irony because there already is a Whole Foods in the neighborhood, essentially across the street from the proposed location (calling it a stone’s throw away seems accurate). The current Whole Foods store in East Liberty opened in 2002 amidst the arrival of similar corporate retail outlets and other new developments that heralded the neighborhood’s rapid gentrification. The market was built as part of a suburban-style shopping center with accompanying parking lot that seems to be invariably congested and unfailingly irritating to shoppers, cars and buses trying to pass by on the street, and especially pedestrians using the adjacent city sidewalks. The new Whole Foods would include a larger parking lot, part of what a company representative described as “new opportunities to surprise and delight our expanding base of shoppers in Pittsburgh” (blech).
Last week the city planning commission unanimously rejected the developers’ proposal for the Penn Plaza site. This decision was unexpected, and received cheers and ovation when it was announced in the commission meeting. Why had the commissioners resoundingly rejected the plan? Their decision seemed to hinge upon a perceived lack of community engagement. As reported by the Pittsburgh Post-Gazette:
“It begins with and ends with the community engagement piece. And at the end of the day, I don’t believe there was any evidence that there were result-oriented parts of the application and presentation that proved that the community gave input,” said commission vice chairwoman Lashawn Burton-Faulk.
The representative for the developers disagreed with this assessment:
Jonathan Kamin, attorney for developer LG Realty Advisors, said afterward that he was disappointed with the decision, arguing that the proposal met all of the requirements needed for approval.
He disputed the commission’s contention that the plan lacked community input. He said the developer held more than 35 meetings with the various constituencies and groups, adding it was “public engagement like the city has never had.”
What to make of this discrepancy in interpretation? Why did the planning commissioners consider the level of community engagement deficient when the developer believed they had conducted an unprecedented degree of engagement? At issue is the very definition of community engagement and the standards to which such practices should be held. Community or public engagement has emerged as a procedural standard in urban planning and development, and while such engagement practices may fall short of realizing the ideals of deliberative democracy to which these terms seem to aspire, at the very least it has been accepted as part of the “due diligence” of the development process. In this most recent decision on the Penn Plaza development there is an evident contrast between standards of quantity and standards of quality. The attorney for the developers cited the number of public meetings held as evidence of “public engagement like the city has never had.” The commission members, by contrast, cited a shallowness of responsiveness as indicative of the poor quality of engagement. Can one-way communication be considered sufficient “engagement”? In this case the planning board is arguing that it cannot; the developers may have held 35 meetings informing attendees of their plans, but their process did not reflect any substantive response to community input, and this was a crucial factor in the commission’s rejection. Of course, one major question that bears asking in this case is: why was there no requirement for community engagement before people were displaced and their homes destroyed?
It remains to be seen what will become of the Penn Plaza site (as well as the ostensibly public park space situated on the lot), and although the planning commission’s decision doesn’t reverse the displacement of hundreds of East Liberty residents, I still find it heartening. This decision signals that city managers are taking community engagement seriously, holding such practices to a standard beyond a mere perfunctory formality, and requiring they be more meaningful than an empty gesture. I am currently working on a study of community engagement practices in another major redevelopment project in Pittsburgh, so I found last week’s news of the planning board’s decision especially salient. More than affirming my own interest in studying community engagement practices, it demonstrates that the theory and practice of public engagement can bear material consequences to urban development projects. I hope that this result will inspire planners and developers to raise their own standards for community engagement.
Last week two topics seemed to predominate in my news browsing: end-of-the-year “best of” film lists, and the Pittsburgh Port Authority’s bus service changes. I didn’t see many new films this year, so most of the titles on the critics’ top ten lists were unknown to me. One film title that kept appearing on the year-end lists was Paterson. I gleaned from these mentions that the movie starred Adam Driver as a bus driver-cum-poet in Paterson, New Jersey. In a subsequent review I read that Paterson was directed by Jim Jarmusch, who’s made some of my favorite films.
The other big news of the new year (in Pittsburgh, at least) was the many changes coming to our city buses. The port authority instituted several new policies and practices beginning on January 1st, including changes to how bus fares are priced and paid for.
In an editorial for the Pitt News, Amber Montgomery surveyed some of these changes and how changes to fare pricing in particular will affect riders:
Perhaps the most important change coming is the new flat fare system and the few stipulations that go along with it. In 2017, riders using a ConnectCard will pay the new fare of $2.50 for a ride and $1 for a transfer, whereas riders using cash will pay $2.75 with no option for a paper transfer — meaning if you’re paying in cash, you must dole out an extra 0.25 cents per trip, and if you need a transfer, it’s an additional flat fare of $2.75.
The changes themselves are vital and will make using buses quicker, easier and more efficient, but the new system will only work best when it is likewise simple and efficient for all users. The priority needs to be on making it so cash can be converted into ConnectCard funds easily through a plethora of retail locations and machines at nearly all bus stops.
While reading up on these changes and their impact I came across Buses are Bridges, a blog dedicated to “mapping the blueprint for transition in Pittsburgh.” They have been writing about the impact that these and other urban developments are having on Pittsburghers. The provocative title of a post from new year’s day caught my attention: “A bus is in itself a city.” The author referenced William Carlos Williams, so I sought out the source of this evocative quote. The original quote is “a man is in himself a city,” and it comes from William’s epic poem Paterson. The poem was Williams’ effort to do for Paterson, NJ what Joyce had done for Dublin in Ulysses. In addition to discovering a fascinating work of city poetry and urban romanticism to add to my reading list, I also realized that Jarmusch’s Paterson film references and is likely inspired by Williams’ poem.
But back to the transit transition in Pittsburgh. Blog co-author Helen Gerhardt relayed some conversations overheard at a bus stop on the day the changes went into effect:
On the Ellsworth sidewalk across from my bus stop, I could hear three people figuring out the new bus fare payment system that just had gone into effect for New Years Day. Not being practiced at poetic distance, but instead a grassroots organizer and loud-mouthed Pittsburgher for Public Transit, I walked across the street and butted right into the information transfer.
“Yeah, everybody gotta pay as you get on the bus from now on,” the guy with glasses was saying.
“And get off at the back door?”
“Yeah, that’s what I heard. But lots of people still getting off up front. And some of the bus drivers, they encouraging people to do just like before unless the bus is crowded.”
The changes to fare prices and how they’re paid are significant, and it is important to consider how these changes will affect low income Pittsburghers and other vulnerable riders who are reliant on Port Authority service. But I want to focus here on the change to the bus entry and exit system, because it directly impacts our local transit culture.
Like public buses in many other cities, Pittsburgh city buses have two sets of doors, one near the front and another set at about the midpoint of the vehicle. Unlike buses in other cities, the rear doors are rarely used on Pittsburgh buses. With the exception of stops at the busy downtown transit hub (and at times when the bus is crowded to capacity), riders boarding or disembarking from the bus only use the front doors. Accordingly, commuters during busy periods typically have to wait for departing riders to exit the bus before being able to board.
This situation affects the ‘Burgh bus riding experience in several ways. For one thing, it means that virtually every rider files past the driver when they depart the bus. This in turn has an associated effect on public transit behavior in Pittsburgh: it is common for riders to thank the driver as they leave the bus. For comparison, consider Philadelphia, our big city neighbor on the eastern side of the state. Buses in Philly operate on the same entry and exit protocols that Pittsburgh just adopted, where all riders enter at the front and exit at the back. For most Philly transit users, thanking the bus driver would be an unnecessary and even impractical gesture. Visitors from bigger cities often find our provincial customs quaint and frivolous: to the average New Yorker, saying “thank you” and “bye” to the bus driver seems like a profligate waste of time and energy. Yet thanking the bus driver is a quirk of our local culture that I relish, and I fear it is a quirk I am fated to be nostalgic for.
It occurred to me riding home last night (after the driver hollered “Back door” as I was making my way up to the front) that the Pittsburgh transit “thank you” is going the way of the dodo. If riders are to be exiting by the back doors, and no longer passing by the driver on their way out, then the customary expressions of leave-taking are surely on their way out. While I was initially excited about this change, especially as it seemed to update our transit policies in line with how things are done in”real cities,” I will also miss what is lost in the transition. Is the new system more efficient? Almost certainly, and in many ways the new boarding system makes a lot of sense and seems like a long overdue change. But every gain is accomplished through an accompanying loss. Innumerable elements of local culture, folk knowledge, and vernacular practice have been eradicated by the inexorable march of order, standardization, and efficiency. In the larger scheme of things the loss of the “driver thank you” may be inconsequential, but it is indicative of the countless small things lost and forgotten in the wake of progress and unending urban transformation.
While in Seoul, South Korea this summer I had the opportunity to visit Songdo City, one of the most comprehensive smart city developments in existence. Located about an hour-long train ride from Seoul, Songdo is located in the Incheon Free Economic Zone (IFEZ) near Incheon Airport. As part of a Korean Free Economic Zone, Songdo is overseen and administered by IFEZ, and this gives Songdo a strange sense that it is not so much a municipality as an international corporate-financial project. Songdo is also a master-planned built-from-scratch development, founded on land that was dredged from the Yellow Sea.
Songdo administrators refer to the development as U-city rather than “smart city,” where the U stands for “ubiquitous computing”. Networked infrastructure and sensor technology is integrated throughout Songdo city. Our tour group visited the Cisco company offices where we saw demonstrations of this networked monitoring and surveillance. This demonstration included a dramatization of a child being reported missing in the city, and showed how the child’s image and name could be displayed on screens throughout Songdo and RFID tracking could be used to pinpoint their location. In daily practice this monitoring appears to mostly concern traffic flow on the city’s streets and other infrastructural maintenance.
Having come from the densely packed and winding streets of Seoul I was struck by the scope and scale of the Songdo development. It is a truly monumental space, in multiple senses of the word. The buildings aspire skyward in an ersatz Manhattan verticality that has also characterized new urban structures in places like Dubai and throughout China. Unlike Manhattan, however, the buildings of Songdo are not claustrophobically constrained between the geographical restrictions of the East and Hudson rivers. Rather these skyscrapers are spaced out around stretches of artificially constructed green spaces that explicitly invoke New York with names like “Central Park,” and also evoke the monumental distancing of the national mall and similar spaces in Washington D.C.
There is an eerie incongruity between the scope and scale of this development and the comparatively paltry population visible on the ground. It seems as if Songdo was built all at once with the capacity to house hundreds of thousands, and now the buildings are sitting vacant waiting for residents to arrive. We talked with some Cisco employees who live in Songdo and they described some of the impediments to attracting new residents (such as lengthy commuting time between Songdo and Seoul), while also claiming that all available real estate was already filled, and the new construction was barely keeping up with demand. I can only assume that a significant portion of the available housing is owned but not occupied, as a form of investment by international parties for example. The affective result of this situation at street-level is uncanny, as broad avenues and expansive plazas appear to hold a fraction of the capacity they were evidently designed for.
We were also given a look into the “mission control center” of Songdo. This is the nerve center, the base of operations for U-city. As you can see in the photo, the control room is dominated by screens displaying hundreds of real-time scenes transmitted by surveillance cameras. In a continuation of the eerie incongruity between the scale of the environment and the number of occupants, we were surprised that such a complex control center was manned by only two people. Dozens of chairs and computer stations were vacant, and our guide explained that the other engineers of that shift were working “in the field,” attending to the city’s infrastructure. It was also striking to see so much concern for monitoring traffic flow when most of screens displayed images of empty streets during our visit.
This incongruity, the disparity between the aims of the built environment and how the space is actually used, was a definitive aspect of my perception of Songdo. There are many cases of such disparities throughout the history of urbanization. Many times there has been a disjuncture between the administrative rationality and the “eye” of top-down planning techniques on the one hand, and the quotidian needs and desires of lived experience on the other. The conflict between abstract representations/conceptualizations of space and the vagaries of embodied use of space finds a new expression in “built from scratch” settlements like Songdo and other examples of smart city initiatives around the world. The Cisco employees we met with described each of their company’s technologies and services as “solutions” without exception. As our group traversed mostly empty streets and sidewalks, many of the innovations on display in Songdo began to seem like solutions in search of a problem. Shouldn’t urban design and policy respond to the needs of citizens rather than impose pre-packaged prescriptive techniques for their own sake? As urban development itself becomes increasingly ubiquitous on the planet, it is worthwhile to interrogate how and why certain developments are considered “smart”, and whether such approaches account for the inherently adaptive intelligence required for the navigation of everyday life.
I rarely weigh in on national politics on this blog, and this post is not intended as an endorsement or a denunciation of any candidate. Although this post responds to recent remarks made by Donald Trump, I’m not interested in joining the pile-on critiquing his overall rhetorical style or campaign message, which seems overly easy and even superfluous at this point. Rather I want to focus on Trump’s comments at the first one-on-one presidential debate last week regarding “law and order” and the “stop and frisk” program. These are topics I’ve thought and written about in regards to the use of “urban disorder” rhetoric in U.S. policy and policing practices. Trump’s positioning himself as the “law and order candidate” and his appeals based on unruly “inner city” conditions recalls previous campaign rhetoric such as Nixon’s 1968 campaign (see the above video). Furthermore, his support of “stop and frisk” policing directly ties his statements to a history of U.S. urban policies based on an order/disorder dichotomy.
Discourses based on a dichotomy of order and disorder have long been applied to urban spaces. In his classic historical survey of urban settlements, The City in History (1961), Lewis Mumford traced the development from early, “organically” developed Greek cities to more structured Hellenistic cities. Mumford describes this process as a transition “from supple ‘disorder’ to regimented elegance” (p. 190). A 2016 opera titled A Marvelous Order centers on the ideological struggle between urbanist Jane Jacobs and mayor Robert Moses in 1960s New York City. This battle of wills between Jacobs and Moses is seen by many to be emblematic of a historical opposition between urban planning schemes designed to order and regiment city spaces and populations, and the disorderly and unplanned activities and interactions that have long been characteristic of city life.
Cities and citizens have been “ordered” not only through planning schemes and infrastructure, but also through public policies and discourses. One aspect of my research focuses on how the term “disorder” has been employed across various discourses and analyses of U.S. cities, and how these discourses have influenced or supported policies of urban development. Through employing the language of disorder, these discourses have functioned pathologically to conceptualize certain citizens, spaces, and practices as either harmful or beneficial.
Writers such as George Simmel, Robert Park, and Louis Wirth wrote about the turn-of-the-century American metropolis as a site of sensory overload and radical diversity. Disorder in these accounts was variously understood as criminal behavior, unregulated or unruly spaces, and perceived failures of integration and communication among different ethnic groups. Park in particular was concerned with broader problems posed by isolated ethnic enclaves and the weakening of social ties among city dwellers, as evinced in his analyses of immigrants and African Americans in U.S. cities. The sociology and criminology of the period was concerned with diagnosing and remedying the causes of disorder, and this diagnostic approach developed into the “social pathology” perspective.
In his infamous report “The Negro Family: The Case for National Action,” then Assistant Secretary of Labor Daniel Patrick Moynihan (1965) applied the social pathology perspective to theorize race relations in U.S. urban communities. Family structure was prioritized in Moynihan’s analysis, claiming that at “the heart of the deterioration of the fabric of Negro society is the deterioration of the Negro family” (p. 6). Moynihan emphasized incidences of unmarried and divorced women, “illegitimate” births, and the number of women-headed households to support his claim that “the family structure of lower class Negroes is highly unstable” (p. 7). Throughout the report, Moynihan refers to a “tangle of pathology” in which black women and children are ensnared, leading to the dissolution of families and thus the increase of violence and disorder in urban centers.
The Moynihan report has been cited as an important influence on the domestic programs enacted under President Lyndon Johnson, initiatives collectively known as The Great Society project. These programs focused on poverty and racial injustice, and also involved urban renewal and redevelopment efforts. Johnson outlined his vision of the Great Society in his 1964 commencement address at the University of Michigan. The Great Society, Johnson said, “demands an end to poverty and racial injustice,” and “is a challenge constantly renewed.” Johnson placed the state of urban America at the forefront of his Great Society vision, saying “our societies will never be great until our cities are great.”
In response to the urban race riots that occurred in several U.S. cities throughout the 1960s, President Johnson commissioned a working committee called the National Commission on Civil Disorders. The commission is also known as the Kerner commission, after Otto Kerner, chair of the commission and then governor of Illinois. Johnson directed the commission members to answer three questions in relation to the riots (Kerner, 1967, p. 1): What happened? Why did it happen? What can be done to prevent it from happening again? In their report, the authors referred to the riots that occurred in Detroit during the summer of 1967, stating that the riots “again brought racial disorders to American cities, and with them shock, fear, and bewilderment to the Nation” (p. 1). One of the report’s best-known statements is that the nation “is moving toward two societies, one black, one white,” and that the recent race riots had “quickened the movement and deepened the division” (p. 1).
In the recommendations section of the Kerner report, the authors dedicate a section to the issue of housing. In addition to calling for provisions for affordable housing in cities, the authors recommend against the further building of high-density “slum” housing projects. The building of such housing projects represent further attempts to impose rational order onto what were seen as chaotic and disorderly spaces, as seen in the modernist urban planning schemes of the 20th century. This philosophy of architecture and urban design is exemplified by the work of modernist designer Le Corbusier. The architect of the infamous Pruitt-Igoe public housing project built in St. Louis in the 1950s was directly inspired by Le Corbusier’s architectural style and philosophy.
While the modernist housing aspirations embodied in the Pruitt-Igoe project ended with collapsed walls and broken windows, students of urban life in America were soon preoccupied with broken windows of another sort. The broken windows theory of urban disorder was a significant influence on urban sociology and criminology for decades, and the implications of its approach to disorder can be seen today. In an article titled “The Urban Unease” (1968), J.Q. Wilson reacted to the U.S. urban riots of the 1960s with a view of cities rooted in the tensions between order and disorder.
Wilson eventually developed these ideas of neighborhood disorder into the broken windows theory, first outlined in an article written with collaborator George Kelling (1982). The authors encapsulate the broken windows perspective by stating “if a window in a building is broken and is left unrepaired, all the rest of the windows will soon be broken” (p. 2, emphasis in original). As with broken windows that go unrepaired, the authors argue, “’untended’ behavior also leads to the breakdown of community controls” (p. 3). Wilson and Kelling are not exclusively interested physical manifestations of disorder such as litter, graffiti, and buildings in disrepair, but present a larger argument that visible disorder (whether stemming from the built environment or from individuals inhabiting it), if left unchecked, will spread throughout a neighborhood.
Wilson and Kelling’s broken windows article proved very influential, and is credited with inspiring the implementation of policing practices implemented in cities throughout the United States. These policing programs have been referred to as “broken windows policing,” “zero tolerance policing,” and also, using Wilson and Kelling’s preferred term, “order maintenance policing”. In the 1990s, order maintenance policies based on broken windows theory were implemented by the New York City Police Department under police commissioner William Bratton and mayor Rudolph Giuliani. These policies were adopted as part of the city’s broader “Quality of Life” initiatives. During this period crime rates in the city decreased, and New York gained a reputation as one of the safest large cities in the country. In a 1998 address titled “The Next Phase of Quality of Life: Creating a More Civil Society,” mayor Giuliani praised the benefits of broken windows theory and zero tolerance policing, saying “broken windows theory works”. Describing the theory as the view that “the little things matter,” Giuliani called broken windows theory “an integral part of our law enforcement strategy”.
Bernard Harcourt has been among the most vocal and persistent critics of broken windows theory. His book Illusion of Order (2001) presents a sustained refutation of the theory’s empirical underpinnings, application in policy initiatives, and ideological implications. Harcourt calls the empirical support for the success of broken windows policing into question, and suggests that factors other than policing practices were responsible for New York City’s crime drop. Harcourt’s theoretical critique of broken windows is explicitly Foucauldian, highlighting the problems of subject creation. The broken windows approach, Harcourt suggests, “fails to pay enough attention to the ways that social meaning may construct the subject and to how our understanding of the subject fosters certain disciplinary strategies” (p. 180). More recently, the broken windows approach and zero tolerance policing have been heavily criticized in relation to the NYPD’s controversial “stop and frisk” policy, and the 2014 death of Eric Garner during an encounter with NYPD officers.
Trump’s deployment of disorder discourses, and his appeals to the virtues of stop and frisk policing, recalls this history in starkly similar ways. A recent Trump campaign mailer includes a close up of Hillary Clinton’s face juxtaposed against images of urban disorder: a brick building with boarded-up windows, and a pile of detritus including splinters of wood and chunks of concrete. The reverse side bears the message: “Donald Trump will strengthen our communities and protect our families. The first step is rebuilding, revitalizing, and reigniting our cities – like yours.” In light of the epidemic violence in the historically segregated areas of Chicago (which Mr. Trump is correct to emphasize), and the recent and ongoing protests against police violence in cities such as Ferguson and across the country, these appeals should be considered within the context of the history of disorder discourses in U.S. urban policy. Much of the strain between vulnerable urban populations and police officers evident today can be seen as the legacy of policing practices instituted under the support of these discourses. With the urban unrest of the 1960s being evoked in political rhetoric and recalled in televised images of protests, we should consider carefully what is being promoted with calls to “reignite” our cities.