Beyond the Promise: Mayors Who Truly Changed Their Cities

New Mayors and the Illusion of Transformation

Zohran Mamdani’s election as mayor of New York City in November was a significant event, and he has consistently framed it as a moment of profound change. Both on election night and at his inauguration, he assured supporters that the city would be fundamentally different under his leadership. “Together,” he proclaimed to cheering crowds on election night, “we will usher in a generation of change.” At his inauguration, he stated that “a moment like this comes rarely. Seldom do we hold such an opportunity to transform and reinvent.”

While such rhetoric is understandable, it echoes promises made by his predecessors. Eric Adams, upon taking office in 2022, declared, “Here’s our moment as a city,” adding, “In four years, this city is never going to be the same.” Eight years prior, Bill de Blasio, standing in front of City Hall, predicted an equally dramatic shift: “There are some,” he said, “who think now as we turn to governing—well, things will just continue pretty much like they always have. … We need a dramatic new approach.”

However, a review of their tenures reveals that neither Adams nor de Blasio brought about the “apocalyptic, indelible” changes they promised. De Blasio expanded access to universal free kindergarten, and Adams oversaw a modest decline in crime rates, but neither fundamentally reshaped the city. Their pronouncements, it appears, were largely rhetorical.

This pattern is common among incoming mayors. They routinely promise sweeping transformations, yet few achieve them. The question then becomes: why the exaggeration? One explanation is that it’s simply what mayors are expected to say. But it also reflects a desire from the electorate for dramatic overhaul, even when replacing a successful incumbent. Voters often prefer to hear bold promises, regardless of past unfulfilled pledges.

Considering this, it’s worthwhile to examine mayors who genuinely brought about significant change. Some explicitly promised reform and delivered, while others simply began working towards improvement.

Examples of Transformative Mayors

Fiorello La Guardia stands out as a mayor who both promised and delivered on change. During his 12 years in office, he dismantled the corrupt Tammany Hall machine, often patrolling the streets with local police. He collaborated with President Franklin D. Roosevelt to secure substantial reconstruction funds during the Great Depression, initiating a building program that boosted the morale of New Yorkers. His personal charm and frequent public appearances cultivated an image of energy and competence, earning him the loyalty of a typically cynical electorate. He asserted that New York would never be the same, and, it wasn’t.

In contrast, Joseph P. Riley of Charleston, South Carolina, exemplified a different approach. Over 40 years as mayor, he transformed a recovering Southern city into a popular tourist destination without relying on bombastic promises. He revitalized the downtown area, created waterfront parks, established a renowned music festival, reduced crime, and increased affordable housing. Riley demonstrated that significant change can be achieved without hyperbolic rhetoric.

Neil Goldschmidt, as mayor of Portland, Oregon, left a lasting mark through strategic decisions. He chose not to build a freeway along the waterfront, instead converting it into a park, which catalyzed the city’s revival. He transformed a downtown parking lot into Pioneer Square, creating a central hub for the city. Funds originally allocated for the freeway were redirected to develop an extensive public transportation system. He also launched a community revival program that gave each neighborhood commercial district a distinct identity. Returning to Portland after his tenure would reveal a dramatically changed city.

Jim Brainard of Carmel, Indiana, provides a more recent example. Over 28 years, he transformed a conventional suburb of Indianapolis into an urbanist gem. He prioritized transportation, implementing roundabouts and underground parking to create a walkable city that attracted visitors and residents. He built a European-style concert hall, extended a walking/cycling trail, and expanded the city’s park system, all while maintaining low tax rates. Carmel’s population grew from approximately 25,000 to over 100,000 under his leadership, consistently earning recognition as one of America’s most livable cities.

Rudy Giuliani’s legacy as mayor of New York City is more complex. Despite a controversial post-mayoral career, he significantly reduced crime rates during his tenure. The city’s murder rate fell from 21 per 100,000 residents in 1994 to 8 per 100,000 in 2001, with overall crime declining by 56 percent. While not solely responsible for these improvements, Giuliani was a key catalyst.

The Common Threads of Change

While each mayor’s approach differed, certain commonalities emerge. Successful change agents often benefit from favorable circumstances. La Guardia emerged during a period of widespread discontent with corruption, while Portland was ready for an urbanist revival under Goldschmidt. However, perhaps the most important factor is a focus on opportunities rather than problems, as advocated by the late George Latimer, former mayor of St. Paul, Minnesota. He advised new mayors to address achievable goals, such as improving trash collection or creating a desired park, before tackling intractable issues like child abuse or educational inequality.

as exemplified by the Roman Emperor Augustus, who transformed Rome from a city of bricks to a city of marble, the ability to bring about lasting change is a rare quality. Many mayors promise such transformations, but few possess the vision, determination, and circumstances to deliver.