Intentionally planning for emergence is sort of a lost art these days. The most famous example is the Manhattan grid, where at its conception there were no zoning limits and it was lines on a map with no infrastructure built, it just kind of filled in by itself and constantly changed over the years (Midtown, for example, was originally a low-slung wealthy neighborhood for people escaping the crowded downtown area)

Part of the “problem” is that we demand so much in modern services which need to be placed ahead of time; this is not the 1800s where you could hoist up a tenement with no plumbing and electricity, no fire, police, hospital or schools to be seen.