Academic economist After graduation, Tugwell served as junior faculty at the
University of Washington,
American University in Paris, and
Columbia University. At Columbia University he taught economics from 1920 to 1932. Tugwell's approach to economics was experimentalist, and he viewed the industrial planning of
World War I as a successful experiment. He advocated agricultural planning (led by industry) to stop the rural poverty that had become prevalent due to a crop surplus after the
First World War. This method of controlling production, prices, and costs was especially relevant as the
Great Depression began.
Roosevelt administration In 1932 Tugwell was invited to join President
Franklin Roosevelt's team of advisers known as the
Brain Trust. After Roosevelt's inauguration in 1933, Tugwell was appointed first as
Assistant Secretary of Agriculture, serving from March 7, 1933, to June 18, 1934. He then served as Under
Secretary of Agriculture. He helped create the
Agricultural Adjustment Administration (AAA) and served as its director. The AAA included a domestic allotment program, which paid farmers to voluntarily reduce their production by roughly 30% so that reduced supply would increase the price they received. It was funded with a tax on processing companies that used farm commodities. Tugwell's department managed the production of key crops by adjusting the subsidies for non-production. The act was ruled unconstitutional by the Supreme Court in 1936 in
United States v. Butler, and had to be replaced in 1938. Tugwell was also instrumental in creating the
Soil Conservation Service in 1933, to restrict cultivation, restore poor-quality land, and introduce better agricultural practices to farmers to conserve the soil. This was especially necessary given the widespread damage of the 1930s'
Dust Bowls. He additionally played a key role in crafting the 1938
Federal Food, Drug, and Cosmetic Act.
Culbert Olson at the
Olympic Auditorium in
Los Angeles, October 28, 1935 In April 1935 Tugwell and Roosevelt created the
Resettlement Administration (RA), a unit of the
Federal Emergency Relief Administration. Directed by Tugwell, the RA sought to create healthy communities for the rural unemployed by relocating them to new communities for access to urban opportunities. Some of the RA's activities dealt with land conservation and rural aid, but the construction of new suburban satellite cities was the most prominent. In her book,
The Death and Life of Great American Cities, the author
Jane Jacobs critically quotes Tugwell on the program: "My idea is to go just outside centers of population, pick up cheap land, build a whole community and entice people into it. Then go back into the cities and tear down whole slums and make parks of them." She believed that he underestimated the strengths of complex urban communities and caused too much social displacement in "tearing down" neighborhoods that might have been renovated. This resulted in greater damage to
inner city neighborhoods. , Maryland town site, in February 1937. The RA completed three "Greenbelt" towns before the
United States Court of Appeals for the District of Columbia Circuit found the program unconstitutional in
Franklin Township v. Tugwell. It ruled that housing construction was a state power, and the RA was an illegal delegation of the Federal Emergency Relief Administration's power. Tugwell had previously been denounced as "Rex the Red". The RA's suburban resettlement program earned him condemnation as Communist and un-American because of its social planning aspects. Historians agree he was at all times a loyal American and was never affiliated in any way with the Communist Party.
American Molasses Co. Given the opposition to his policies, Tugwell resigned from the Roosevelt administration at the end of 1936. He was appointed as a vice president at the American Molasses Co. At this time, he divorced his first wife and married Grace Falke, his former assistant.
Director of New York City Planning Commission In 1938 Tugwell was appointed as the first director of the
New York City Planning Commission. New York's reformist mayor,
Fiorello LaGuardia, created the commission as part of a city charter reform aimed at reducing corruption and inefficiency. The Planning Commission had relatively limited powers: all actions needed approval from the legislative
Board of Estimate. Tugwell tried to assert the commission's power. He tried to retroactively enforce nonconforming land uses, despite a lack of public or legal support. His commission sought to establish
public housing at moderate densities, yet repeatedly approved FHA requests for greater density.
Robert Moses killed Tugwell's proposed fifty-year
master plan with a fiery public denouncement of its open-space protections.
Governor of Puerto Rico Tugwell served as the last appointed American
Governor of Puerto Rico, from 1941 to 1946. He worked with the legislature to create the
Puerto Rico Planning, Urbanization, and Zoning Board in 1942. Tugwell supported Puerto Rican self-government through amendment to the
Organic Act in 1948 but fiercely opposed decentralizing government agencies and services away from the city of
San Juan "despite most Puerto Ricans in need of such services not residing in the capital." In one case, he vetoed a bill approved by both chambers of the Puerto Rico Legislature, and supported by 59 of 77 municipalities, establishing a state medical school in the city of
Ponce, calling it "regionalism." He publicly supported
Luis Muñoz Marín's
Popular Democratic Party, which wanted a Commonwealth status. As he prepared to retire from the Governorship, Tugwell was instrumental in getting the first Puerto Rican appointed to the job,
Jesús T. Piñero, then serving as
Resident Commissioner in
Washington, D.C. Tugwell also served as Chancellor of the
University of Puerto Rico.
Return to academia After his stint as governor, Tugwell returned to teaching at a variety of institutions. He had years of service at the
University of Chicago, where he helped develop their planning program. He moved to
Greenbelt, Maryland, one of the new suburbs designed and built by the Resettlement Administration under his direction. After the
atomic bombings of Hiroshima and Nagasaki, Tugwell believed that
global planning was the only sure way to prevent a nuclear apocalypse. He participated in the
Committee to Frame a World Constitution from 1945 to 1948. He also thought the national constitution needed to be amended to enable
economic planning.
Progressive Party (1948) In 1948, Tugwell served as chair of the platform committee for the
Progressive Party. During its
convention (July 23–25, 1948), he recounted a conversation with presidential candidate
Franklin D. Roosevelt in 1942 during which Roosevelt warned him of internal clashes that might destroy the Democratic Party but might also create a "Progressive Party", adding in his own words that Roosevelt "would have led a movement like that which we now join." Tugwell pled for party unity under a platform that
The New York Times summed up as "endorsing Red foreign policy".
Later life Late in life, Tugwell drafted a constitution for the Newstates of America. In it, planning would become a new branch of federal government, alongside the regulatory and electoral branches. During this time, he wrote several books, including a
biography of
Grover Cleveland, subtitled:
A Biography of the President Whose Uncompromising Honesty and Integrity Failed America in a Time of Crisis (1968). His biography of Franklin D. Roosevelt was entitled
FDR: An Architect of an Era. A Stricken Land was his memoir about his years in Puerto Rico. This book was reprinted in 2007 by the
Muñoz Marín Foundation. ==Representation in other media==