JEROLD S. KAYDEN, a lawyer and urban planner, is Associate Professor of Urban Planning at the Harvard University Graduate School of Design. He has published widely, coauthoring Landmark Justice: The Influence of William J. Brennan on America's Communities and coediting Zoning and the American Dream: Promises Still to Keep. THE NEW YORK CITY DEPARTMENT OF CITY PLANNING guides the City's physical development and formulates land use plans and strategic policies with major goals that include encouraging housing and economic development, improving the City's quality of life, and preserving its