By exploring and comparing North America's, Russia's, and Japan's "second cities" of a century ago -- Chicago, Moscow, and Osaka -- Second Metropolis discloses the extent to which social fragmentation, frequently viewed as an obstacle to democratic development, actually fostered a "pragmatic pluralism" that nurtured pluralistic public policies. sSuch policies are explored through six case studies -- the politic of street railways and charter reform in Chicago, adult education and housing in Moscow, and harbor revitalization and poverty alleviation in Osaka -- that illustrate how even those with massive political and economic power were stymied by the complexity of their communities. Chicago, Moscow, and Osaka, though the products of very different nations and cultures, nonetheless shared an important experience of inclusive politics during an era of extraordinary growth and social diversity. The success of all three cities, which went well beyond mere survival, rested on a distinctive political resource: pragmatic pluralism.