I actually found it kind of frustrating. I mean, it's been legal to go topless in NY for years now. Why should it still be so awkward and so rare? And why is it still so strongly viewed as "inappropriate?"
The problem is that scoial norms only change when people are willing to put themselves out there as the first to do so. Generally they open themselves up to harassment and name calling in the process.
I've known lots of (non-nudist) women who have told me that they went topless on vacation in Europe or the Caribbean because lots of other women were topless and it looked fun. Many of those same women wouldn't try it at a place in the US where it's legal but not practiced because nobody else is and they don't want to be the "odd woman out."
Much like the woman in this story they would probably get hassled by a cop, who knows he can't do anything except give her a hard time. There would probably also be a good chance of some irate mother coming over with some "I can't believe this, I am trying to enjoy this park with my kids and I don't want them seeing that." Also in a place where you are by far the least dressed woman around be prepared for some unwanted attention from creepy guys. It's not fair but most people would rather fit in with at least a few other people in the crowd. That's why when a chance for skinny dipping or going topless comes up among non-nudist groups it's often "I'll do it if you do it too;" because they don't want to be the only one.