4 | Analyzing the Cities Alliance Knowledge Library

4ANALYSING THE CITIES ALLIANCE KNOWLEDGE LIBRARY

© UN-Habitat/Julius Mwelu

The outlined framework was applied to the knowledge library of Cities Alliance. Identifying the right documents was once again the biggest challenge. Experts within the network of Cities Alliance were contacted to indicate publications that feature a longer discussion on the informal. In addition, the consortium of the library tender70 produced an overview of all knowledge products that featured a high number of the word count informal* in the text body. These were then analysed to identify documents of relevance for this study.

In total, five documents have been analyzed to provide a deeper insight into how Cities Alliance and its members conceptualize informality. The documents were selected for their representative nature for a specific discourse on informality and the quality of conceptualization of the informal. The results are provided for each document separately.

4.1 A Short Overview of the Analysed Documents

Cities Alliance (2019) Addressing Informality in Cities Policy Paper

This policy paper was written for and presented at the World Summit of Local and Regional Leaders, convened by United Cities and Local Governments (UCLG) in Durban, in November 2019.71 The short policy paper argues strongly that governments need to recognize

70 – A tender was running in parallel to the writing of a paper series. This consultation aimed at reforming the knowledge library of Cities Alliance and has developed as part of this assignment a new tagging taxonomy. An expert in data mining and machine learning mined all documents on the back-end. 71 – Cities Alliance, 2019. 72 – Lloyd-Jones and Redin, 2017. informality as a key contributor to the economies of emerging countries. It identifies the need for better-informed government responses to maximize the potential of informality while curtailing negative effects, such as socio-spatial inequality.

A political understanding of informality influences the characterization of informality. It is perceived as a product of urbanization that is shaped by the position and action of governments. As the document provides specific recommendations of actions and priorities (road map), the sections discussing the informal are relatively short. Despite the limited space dedicated to characterizing the informal, the applied framework can unearth a focus on the economic and technical dimensions of the informal.

Cities Alliance (2016) The Role of the Informal Economy in City Growth

A second document written by Cities Alliance is a research report within the Future Cities Africa Initiative. The “Transformational Change in Sub-Saharan Cities: The Role of Informality in the Hybrid Economy of Uganda” extensively reviews the literature on the informal economy and develops the idea of a hybrid economy that emphasizes the interlinkages of the informal and formal economy by arguing to perceive it as one continuum.72

We analysed the section on the reconceptualisation of the urban informal economy (p.50-56) that provides the basis for developing the hybrid economy model in the research report. The section discusses the ways the informal economy (or sector) has been described in the literature. Naturally, the economic dimension dominates the informal view, but the technical and political understanding is well present in the document.

UN-Habitat (2009) Global Report on Human Settlements: Planning and Informality

The Global Report on Human Settlements (GRHS) is a publication series of UN-Habitat. The ground-breaking report of 2003 (Challenge of Slums) has been highly influential among practitioners and academics and contributed to establishing the topic within international diplomacy. The 2009 report is dedicated to “Planning Sustainable Cities” and discusses the effectiveness of the tool urban planning to tackle the urbanization challenges in the 21st century.73

The chapter “Planning and Informality” (p.47-54) provides a detailed debate on urban informality and its connections to planning by outlining the characteristics of informality, the global trends, factors affecting informality, and the responses of planning circles. Interestingly the document section is concerned with informality in the Global South and dedicates an entire page to developed and transitional countries.

The characterization of informality is rather comprehensive, with many ideas concerning the economic, legal and organizational dimensions of informality. As the debate emphasizes the relation of informality and planning, most characterizations are about technical informality.

UN-Habitat (2013) Global Report on Human Settlements: Informal Transport

A second GRHS of UN-Habitat is dedicated to mobility.74 The “Planning and Design for Sustainable Urban Mobility” report provides a smaller section on informal transport (p.26-30). A very dense debate on informality is provided on a few pages. This document is particularly interesting as informal transportation is not subject to a distinct informality discourse.

The characterization of the informal draws heavily from three dimensions. While the economic dimension is, in terms of occurrences, the most important dimension, the relational share points to a foremost technical and organizational understanding of informality. Social and cultural ideas are only little addressed while the political dimension is completely absent.

Landmark (2011) Managing urban land a guide for municipal practitioners

Landmark developed this guide for municipal practitioners. Developed as a hands-on document in the context of South Africa, the intention was to encourage government officials to use their capacities and knowledge to identify tools and techniques that can eventually lead to pro-poor outcomes. A dedicated section addresses the informal land market by highlighting its structure, the importance of social relations, their overlap with formal markets, and the role of the state (p. 25-29).

The characterization of informality is relatively balanced, and only the legal dimension is absent. The informal land literature often stresses the idea of a degree spanning between informal and formal land tenure and the role of politics and regulations therein. As tenure is a social relationship, particularly in African countries with tribal land management systems, a social and cultural understanding of informality is well developed.

4.2 Highlighting Differences and Similarities of Informality Concepts

There are interesting overlaps and differences between

the analysed documents. The analysed documents provide longer text passages on informality. We highlighted every single idea we could find and marked them in our taxonomy. Some ideas did not neatly fit into the preexisting structure, and the taxonomy was finetuned and extended. The taxonomy with seven dimensions is a work in progress and is likely to change from one analysis of documents to the next one. Important is its capacity to highlight similarities and differences within and between discourses (practitioner-focused and academic).

Text Box 2: A Visual Representation of the Ideas was Developed to Allow In-depth and Quick Comparison

Each dimension has 15 ideas (the economic dimension has twice the number), and we grouped them into 3 by 5 box fields with the starting letter as a bolded outline. The respective numbers are connected to specific ideas as outlined in section 3. At the same time, such representation allows to visually compare the different documents and identify similarly shared ideas as well as compare the overall weight of dimensions.

Economic Dimension (1-15) Legal Dimension (1-15) Technical Dimension (1-15) Organizational Dimension (1-15) Economic Dimension (16-30) Political Dimension (1-15) Social Dimension (1-15) Cultural Dimension (1-15)

Each document has its distinct view on informality. This is well illustrated by the figures that help identify the density of ideas within a dimension and the attributed weight between dimensions. The document on the informal economy provides the most ideas on the political (shared) and the cultural dimension. Informal Planning scores the highest in economic, legal and technical dimensions, while informal transport grants the deepest insights into organisational informality. The document on informal land is the one in the sample with the most ideas in the social and political, latter is shared with the document on the informal economy. An interesting fact is that the overall density of ideas (The share of mentioned ideas to the total) is rather comparable, ranging around a third (29%, 30%, 32%, 34%) with a notable exception, the policy paper with a stronger emphasis on government action. Each document also has its blind spot. No analysed document uses the full range of dimension ns of informality. These blanks (defined by less than one idea per dimension) differ from one document: two times, no idea about the legal and social dimension of informality could be found. In contrast, the cultural and the political dimension were left out one time. These blind spots represent opportunities to communicate between discourses. The dense technical understanding in the informal planning document could inform the other discussions on informality. The strength of the discussion of informal land markets in the political and social dimensions could be useful for other debates.

Informal Economy

Urban Informality Informal Transport

Informal Planning Informal Land Market

There are many informalities in the practitioner’s litera-

ture. What this document analysis clearly shows is how our understanding of informality differs. The differences occur in how a conceptualization of informality emphasizes certain dimensions of informality and the very specific ideas attached to the term of informality. Each idea could be assessed for its importance and relevance. Such dialogue could ultimately lead to a new working definition of the informal or facilitate the dialogue between international organizations and stakeholders on the ground. Informal activities appear to be highly context-specific, and working with local actors could help to pinpoint similarities and differences between views on informality.

Important: Illustrating the similarities and differences is the first step towards a more comprehensive understanding of informality.

5CONCLUSION AND WAY AHEAD

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Similar to the pervasiveness of slums in contemporary

urbanisation, debates on the informal are here to stay. The current discussion is split between different topics and spearheaded by various international organisations, leading to topic fragmentation and different viewpoints on the topic. Further complicating is the fact that definitions of the informal are largely missing.

It is of utmost importance to delineate informality. This delineation has to be done by analysing the characteristics of informality and how the entity of informality relates to formality in both its constellation and the nature of exchange. Unfortunately, this is hardly done in practice, and we have only a vague understanding of what constitutes the informal (and what does not). Vagueness and absences of definitions open up a topic for interpretation and the possibility to fill the void with meaning. This can be a dangerous process when driven by wrong intentions. As we have seen in the review paper on the challenge of slums, the flexibility of the term can be misused to justify the worst actions. A similar risk can be observed for the use of the term informality.

The way we define informality shapes our actions. Definitions draw borders between what we consider and what we exclude in a specific context. They are therefore instrumental ininfluencing our understanding of a topic and the ways we develop answers to problems. In a forthcoming paper, we are attempting to provide evidence of the link between informality concepts and policy recommendations.75

A multi-dimensional understanding of informality unlocks

comparison between discourses. The discussion of informality is very complex and multi-layered. We developed a taxonomy of meaning based on several dimensions. Different discourses depict informality by referring to its economic, legal, technical, organisational, political, social, and cultural dimensions. We analysed documents that discussed informality in different contexts: cities, economy, planning, land and transport and could highlight how each discourse contributes a different viewpoint on informality. While there are considerable differences between the analysed documents, the taxonomy also points to enough common grounds, shared ideas on the informal.

Preliminary findings reveal a promising road map towards

a holistic understanding. The findings of this paper are promising as the framework was developed from mostly academic sources but could be rather smoothly adapted to the practitioner’s literature. A separation line between academia and practice is rather difficult to draw, and the taxonomy was slightly adapted and extended.

More research is needed on the practice of informality

and its connection to policy recommendations. The biggest challenge remains the identification of documents where informality is discussed in an adequate depth. While the data mining approach has proven successful, we want to reiterate the open call for involvement. Get in touch with Cities Alliance and/or the authors to provide feedback and share any document you are aware that could be useful to expand this analysis on informality concepts.