One of my greatest intellectual pleasures is delving into biographies.
Currently, I am exploring Pulitzer Prize-winning narratives. The most recent one I completed was published half a century ago and is filled with insights on contemporary infrastructure and urban design.
This biography focuses on Robert Moses, the unelected mastermind who transformed New York during the first half of the twentieth century.
Moses was a polarizing character, employing an unmatched blend of political strategy, legislative maneuvers, and institutional authority to create the city's parks, highways, bridges, beaches, and tunnels.
Despite never holding an elected position, he had more sway over America’s biggest city than any mayor or governor of his time.
Even now, extensive parts of New York City (and the state of New York) bear the influence of this idealist who morphed into a power-thirsty egotist, effectively running a separate governance of his own.
Robert Caro’s biography, The Power Broker, is often seen as one of the most exceptional biographies ever penned, as it represents a significant achievement in investigative journalism and an engaging examination of power dynamics.
Caro dedicated seven years to uncovering documents, interviewing numerous individuals, and analyzing the machinery of urban governance.
The outcome is a 1344-page (or 66-hour audiobook) tour de force that reads like a political suspense novel while also delivering deep insights into how determined individuals can pervert democratic systems.
As a contemporary audience, we have much to learn concerning current infrastructure.
How to prevent a modern-day Robert Moses: Guidance for developing superior, more equitable infrastructure.
If you seek an overview of Moses and are reluctant to tackle a lengthy book before reading this article, consider this brief biography available on YouTube.
Moses constructed more roads, bridges, parks, and tunnels than anyone else in American history. However, he also destroyed communities, deepened (racial) inequality, and bound New York to extreme car dependence for decades.
The brilliance of The Power Broker is not only in chronicling Moses’ accomplishments but also in exposing the techniques that permitted one unaccountable official to mold a city in ways that frequently opposed the public's interest.
I argue that those techniques provide significant lessons for today’s decision-makers.
For infrastructure that optimally serves the public at reasonable costs, we must comprehend how Moses circumvented the system and how that system enabled his actions.
1. Be cautious of unchecked public authorities
Moses' most powerful asset was the public authority. These organizations operated independently from political control, financed by their own income and regulated by the laws he devised.
These authorities had the power to incur debt, purchase land, and initiate projects without open oversight. A public authority generated revenue by imposing tolls on roads and bridges and had the liberty to use those funds as they wished.
Takeaway for today:
We need to enhance monitoring of infrastructure authorities instead of diminishing it.
Independent boards must work without outside influence
Substantial revenue and expenses should not occur without checks from parliament
Important choices must be visible to the public, not solely to a minister's office.
The organizations constructing our infrastructure should prioritize transparency.
2. Clarity of costs is essential
A hallmark of Moses was his tactic of underestimating costs.
He would propose a project at an appealing price, secure approval, begin work right away, and later approach politicians for more funding as expenses naturally increased.
Politicians frequently acquiesced to these requests. They could not afford to appear indecisive in the public eye by stopping a project after committing so many funds.
Those familiar with popular psychology literature are likely aware of the influence of the sunk-cost fallacy.
Takeaway for today:
Require independent cost evaluations at various phases and make them public.
Assumptions about contingencies need to be open
Updated budgets should initiate automatic assessments
Any expedited commencement must have a mechanism to halt if costs escalate
Mega infrastructure projects inherently carry uncertainty, and expenses may rise for valid reasons (such as global supply disruptions or natural disasters), but basic financial transparency is what taxpayers ought to insist upon.
3. Ensure land and route acquisition decisions are open
Moses frequently chose highway paths that would encounter the least resistance, often running through poorer, minority, or politically insignificant communities while shielding affluent areas with influence.
Takeaway for today:
We must insist on a transparent, data-based rationale for determining routes and sites.
Social impact assessments are essential
Community engagement should happen early enough to be effective
Long-term equity results should be considered in addition to travel-time evaluations
Infrastructure shapes a city's social landscape for years to come. Such decisions should no be made in secrecy
4. Beware of the “fait accompli” storyline
Caro illustrates Moses’ ability to create a sense of urgency.
He would set up phony deadlines, initiate minor tasks of a project, or begin construction before receiving the necessary funds. This left politicians with little option but to move forward.
Key takeaway for today:
Governments need to view early construction as a warning sign.
No project should commence without securing complete funding approval.
Land should not be acquired until all required reviews are finished.
Any initiative involving early work must be backed by a clear rationale and limits.
While momentum is beneficial in politics, unchecked momentum in infrastructure can result in poor projects becoming unavoidable.
5. Enhance procurement integrity and minimize risks of favoritism
Moses relied on a system of favors, loyalty networks, and preferential contractor treatment to gain political and bureaucratic backing.
Although blatant corruption was infrequent, systemic bias was evident.
Key takeaway for today:
Procurement procedures should be shielded from corruption and political influence.
Disclose shortlists and the reasoning behind them.
Establish a framework for truly competitive bidding.
Ensure contractor performance is tracked openly.
Rotate leadership within agencies to avoid consolidated power.
Large infrastructure initiatives draw significant interests; safeguards are essential.
6. Authority over charm
Moses excelled at storytelling, serving as a heroic figure who skillfully managed media relations (he faced little public criticism for many years).
His impressive construction projects, public ceremonies, dramatic flair, and captivating presence transformed him into a political powerhouse even without being an elected leader.
Key takeaway for today:
We need to distinguish between performative public relations and decisions anchored in solid evidence.
Publish comprehensive business cases
Mandate agencies to share evaluations after project completion
Establish incentives for politicians to advocate for ongoing maintenance and improvements, rather than just flashy new initiatives
The value of an infrastructure system should be assessed not by the quantity of concrete used, but by the efficiency of the network.
7. Strengthen the ability to resist
Caro emphasizes that Moses’ ascendance was facilitated not just by his brilliance, but also by the frailty of the democratic structures designed to hold him accountable.
Legislators failed to read the legislation. Governors were preoccupied. Mayors lacked knowledge. Civil society was short on data.
Key takeaway for today:
Effective infrastructure governance demands a robust democratic framework.
Parliaments should possess genuine infrastructure expertise and include knowledgeable specialists.
Communities require access to clear, high-quality information.
Researchers and journalists need tools to examine project economics thoroughly.
Opposition parties should view infrastructure as a policy concern rather than a means to attack.
A system that is unable to reject proposals will ultimately be overtaken by those who favor inappropriate priorities.
8. Design for the populace
Numerous projects by Moses showcased a narrow perspective: the domination of car travel. While parks, beaches, and recreational areas existed, nearly everything was ultimately designed with automobiles in mind. The long-lasting implications for city layouts were significant.
Key takeaway for today:
Infrastructure should embody the society we aspire to create, rather than reflect the beliefs of a past era.
Combine housing, land use, and transportation planning
Analyze emissions, equity, accessibility, and resilience
Take into account aging populations, evolving work patterns, and new technologies – consider demographic realities from the beginning
Infrastructure shapes our future, and we must deliberately select the future we desire.
The Moses caution
Moses should not be seen as a stereotypical antagonist. He was an extraordinarily skilled builder functioning within a governance framework he created, one that prioritized quick results over clarity and showmanship over responsibility.
His successes were tangible, but they came with significant downsides.
The important takeaway from The Power Broker is that infrastructure can be influenced by individuals who lack election, accountability, and a focus on the public's long-term interests. We need to establish institutions that are robust enough to attract the most brilliant builders while simultaneously preventing the excessive transfer of power.
Australia is on the verge of a significant infrastructure expansion, particularly in Queensland, where Brisbane is getting ready to host the 2032 Olympics.
The implications are substantial. The straightforward inquiry that Caro encourages us to consider is whether we are implementing safeguards as swiftly as we are executing the projects.
Frequent readers of this column may recall my earlier writing on the importance of removing politics from infrastructure in Australia and my assertion that Australia's wealth is largely due to our strong institutions.
The foundations of this nation are crucial and require ongoing reinforcement and assessment. Those involved in infrastructure, housing, or politics would find The Power Broker an excellent choice for summer reading.
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