By comparing North America's, Russia's, and Japan's "second cities"--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. Such policies are explored through six case studies that illustrate how even those with massive political and economic power were stymied by the complexity of their communities. These three cities, though the products of very different nations and cultures, shared an important experience of inclusive politics during an era of extraordinary growth and social diversity.