Whilst in the UK, I finished reading Robert Caro’s biography of Robert Moses. I submit that it is impossible to finish that book without really viscerally despising Moses. Partly out of a desire to leave no hole in his argument unfilled, and partly because he has trouble using one word when forty-five words will do, the book is just really, really long — nearly 1,200 pages. I wanted to get angry at Caro for doing this; every time I considered getting angry at him, though, the next sentence would be some devastating quote from one of Moses’ victims. The book could still stand some editing, but it’s certainly the quickest, most engrossing 1,200-page read I’ve ever had.
It’s far more than just a biography of Moses. It’s a study of how power actually works — how, specifically, dictators amass power, and how even ostensibly democratic systems can evade public scrutiny. For at least 30 years, according to Caro, Moses was utterly beyond democratic control. Anyone who wanted to get anything done in New York City needed Moses’ money, and needed the engineering expertise that he monopolized. Anyone from the City’s government who wanted to talk with the federal highway or public-housing authorities had to talk to Moses, who would relay (his version of) their words to the feds. No one could fire him without bringing down an endless public outcry — an outcry encouraged and protected by the media, which Moses expertly manipulated into printing only what he wanted said and only the statistics that his office generated. Money and media were in his pocket; with those, he was invincible. A purely accidental slipup after 40 years in power led to a crack in the godlike image that the media had sculpted for him. That crack led the media to question one small corner of his power. Having surrounded himself by yes-men, Moses flew in a rage against any such questioning. But you don’t pick a fight with the media. (The phrase one always quotes here is something like “Never pick a fight with someone who buys ink by the barrel.”) That rage led to still more questioning, which led to still more rages, and by the time it was through his media armor was gone. Down fell the rest of his protection.
That, in the tiniest conceivable nutshell, is the story of Moses’ power and its end. The Power Broker is an in-depth study of the processes that made all of this possible. The argument is watertight, as far as I can tell.
My big lingering question from Caro’s book is whether any amount of legal tinkering could possibly have saved democracy from Moses. The people with the money will probably always own the political process in this country, whether they buy the politicians outright or do it in more stealthy ways. Much of The Power Broker explains the “honest graft” that powered the Moses machine: payoffs to lawyers hidden as fees, payoffs to insurance companies hidden as premiums, payoffs to banks in the form of interest-free loans, and payoffs to unions in the form of contract favoritism. When Moses “pushed a button,” everyone on his side — which is to say, the lawyers, and insurance companies, and banks, and unions — would call anyone whom Moses wanted them to call and state in no uncertain terms that the recipient’s political career would end unless he did Moses’ bidding. No politician could withstand this kind of constant pressure. Moses had to engineer some remarkably clever legislation and get it pushed through without anyone noticing the details, so if anything he’s a worst-case example . . . but that’s just the point: you want to look at how the system (in this case representative democracy) works when something fails.
Apart from Moses-hatred, two big themes come out of the book. First, I will probably never read a newspaper the same way again. If we believe Caro, the media’s coverage of anything related to Moses bore no relation to reality — both because Moses wined them and dined them, and because they seem just incapable of reporting political backstories. And all the people who actually wield the power are far too clever to pull the lever themselves. The real power in New York, says Caro, is in places like the Chase Manhattan Bank, but the press never bothers to report from there. And the press is much more attuned to clear-cut scandal — actual bribes, say — than it is to honest graft. For 30 years, no one had the slightest clue what Moses was doing, even when what he was doing involved condeming the homes of tens of thousands of poor New Yorkers.
The Power Broker’s other big theme is that the private automobile is an absolute disaster for American cities. It doesn’t even make mathematical sense to build roads to the exclusion of public transit when you’re trying to address traffic congestion: train tracks can accommodate an order of magnitude more passengers than can highways. And train tracks encourage higher-density development, by encouraging people to walk to their trains. That higher-density development means people can own fewer cars. Conversely, if lots of people own cars, the whole pattern of development centers on cars — which is where strip malls and highway ugliness come from.
That second point illustrates the silliness of one common line of American thought. When an ugly patch of road forms that’s lined with nothing but strip malls and McDonald’s, we’re inclined to say, “It must have happened because people wanted it to.” But what “people want” is defined by the choices available to them. If someone lives in most American suburbs, he can’t “choose” to walk to work. That choice is not available to him. He can’t choose to walk to a movie theatre. He is forced, in fact, to “choose” to own a car. He then chooses, like tens of thousands of his fellow-Americans, to sit in the same traffic jam on the same highway. This isn’t choice: this is path dependence, enforced by the roads that we’ve built. Had the government chosen to invest in subways and high-speed rail, the set of choices and costs would be different. But it doesn’t even make sense to talk about a choice that’s unencumbered by prior decisions or by institutions: the institutions define the set of available choices, and then those choices force future choices of institutions.
The big trouble with a public work like a bridge or a highway is that if society decides in the future that it wants to pursue another path — say, subways — that option is pretty decisively foreclosed. Caro illustrates this point with Long Island: it would have been cheap to have bought a 20-foot right of way for high-speed rail while condemning land for highways on the Island. Once that highway went down, though, the value of the land immediately shot up. It shot up even more when houses starting popping up there. Nowadays, even getting started on laying down track for a high-speed rail would involve tens of millions — perhaps hundreds of millions — of dollars in condemnation fees alone. Our earlier choices, in a very direct way, made later choices difficult if not impossible.
So it’s hard, I think, to escape The Power Broker without really and truly despising the automobile. It’s been a disaster for American cities, a disaster for America’s rural areas, and of course a disaster for American foreign policy. Robert Moses may have done more than any one man to unite the evils of the automobile with the evils of undemocratic public planning.
P.S.: For sheer misstatement of what The Power Broker is about, it would be hard to do better than the New York Times’s ‘balanced’ coverage of Caro’s modern opponents. This is rather funny, considering that The Power Broker levels its biggest guns against the Times’s role in whitewashing Moses’ achievements. Plus ça change . . .