Water and sanitation in the Buenos Aires metropolitan region: Fragmented markets, splintering effects?

This paper discusses the provision of water and sanitation services and the related urban impacts in Buenos Aires circa 2005. The first part of the paper focuses on the metropolitan region (BAMR) which is larger than the area served by the Aguas Argentinas S.A. (AASA) concession (i.e. the capital and its conurbano). It highlights a form of institutional fragmentation that is reflected in the diverse management practices of the numerous service providers and results in differentiated levels of and access to services. The paper discusses the technical, economic and regulatory factors that have historically resulted in this institutional fragmentation. The second part of the article focuses on AASA’s water concession agreement. It demonstrates that, although the agreement had an in-built splintering logic, its implementation led to a more “integrated approach” based on the “reality on the ground”. On the whole, the conclusion regarding the application of the splintering urbanism concept to Buenos Aires is a mixed one and depends on the scale of observation. Although at regional level (BAMR), a form of “institutional fragmentation” would appear to be obvious, it is the result of a long and complex historical process and, while recent neo-liberal reforms in service provisions have “cemented” this fragmentation, they did not actually cause it. If we take the AASA service area in isolation, the trend in the decade following the contracting out of the service has been one of improved service provision and access—although this was not achieved through increased integration of the supply system. Finally, in the case of the Buenos Aires metropolitan region, the splintering urbanism thesis defended by Marvin and Graham needs to be nuanced in several significant ways.     

Water and power networks and urban fragmentation in Los Angeles: Rethinking assumed mechanisms

Los Angeles is often described as the epitome of urban fragmentation, a notion which in this context is frequently connected to, or even conflated with urban sprawl. At the same time, the city features integrated water and power networks which have been under public ownership for over 70 years. We thus have an apparent paradox in the context of the debate on ‘splintering urbanism’, between socio-spatial fragmentation and the integration of networks. In discussing the idea that deregulation of infrastructural networks exacerbates urban fragmentation, the authors use the case of Los Angeles in order to highlight the central role of private interests in management decisions concerning infrastructure networks. The authors carry out their analysis in an historical perspective, revealing that network integration and universal access can often serve private interests more than the public good. Urban fragmentation in Los Angeles, they conclude, is the result of a complex process of instrumentalisation of network development and management.     

Splintering urbanism in Mumbai: Contrasting trends in a multilayered society

This paper is an examination of the splintering urbanism argument of the relationship between neo-liberal reforms of infrastructure networks and urban cohesion. Based on an analysis of historical and contemporary processes of infrastructure provision (water, sewerage and power) in colonial/post-colonial Bombay/Mumbai, it questions the assumption of a “modern infrastructure ideal” in the context of developing cities. In Mumbai, the historical analysis reveals the contradictions between this ideal and a hierarchical society. From the outset, access to services (particularly water and sewerage) was highly distorted in favour of the elites, even though utilities networks contributed to urban integration through cross-subsidies within and across sectors, and through the setting up of municipal institutions. Second, ongoing sectoral reforms demonstrate contrasting trends as increased differentiation of services produces both positive – better adaptation to users’ needs – and potentially negative – fragmenting – socio-spatial implications. Third, an understudied potential fragmenting threat also lies in the sectoral approach to reforms as it undermines the existing crosssector subsidies and prevents the articulation of utility reforms with other limiting factors, such as land and transport, which are the main constraints for expanding housing and mobility in the city.     

Reviewing urban revitalisation strategies in Rio de Janeiro: from urban project to urban management approaches

This paper describes key urban development strategies pursued during the last seven years by the Municipality of Rio de Janeiro, the second largest city in Brazil. It discloses internal processes, organisational restructuring of the municipality and institutional changes geared to increase effective urban management and resource mobilisation required to implement multiple sector programmes and key projects in several locations in the city like Favela Bairro and Rio Cidade Programmes, The Rio Strategic Plan, etc. It is argued that the formation of interdepartmental working groups for better horizontal articulation of policy making and implementation, the creation of the financial and accounting unit, the decentralisation of authority towards sub-municipality levels, and capacity strengthening of its personnel – among other things – have made a positive impact on the performance of local government. The paper further highlights a significant change towards policies of urban consolidation and revitalisation of declined areas of the city supported by heavy public investments and the effort towards broader civil society involvement in municipal projects. Municipal autonomy, problem-solving and result-oriented type of planning and management and organisational change are some of the lessons pinpointed by the paper for a city of that size and complexity.     

Differentiating networked services in Cape Town: Echoes of splintering urbanism?

The central focus of this paper is on the differentiation of basic urban trading services in middle income cities and its role in service provision for the poor. Most studies dedicated to service delivery to the poor emphasize the inequalities pertaining from a growing differentiation in provision and take up some of the arguments of the splintering urbanism thesis. The paper examines some of the main claims made in this debate through a case study of Cape Town (South Africa). It illustrates how differentiation is implemented through service levels and tariffs and suggests that it is a pragmatic way of accommodating social and spatial disparities in a highly polarized city, while making progressive steps in favour of the poor. The main argument is that, in Cape Town like in many middle income cities, urban diversity restricts the relevance of conventional social policies and the scope of local solidarity with regard to service delivery. The differentiation of provision is thus a strategy to bring the diversity within the public service, and hence to preserve an institutional and financial public capacity of delivering subsidized services to the poor.     

Metropolitan government in Toulouse: From fragmentation to federalism

This paper examines changes in governance in the metropolitan area of Toulouse, which includes 78 communes and contains a population of 761,000. As in most French cities local government is very fragmented. Until the end of the 1980s, the urban services were delivered by many associations of communes, both single-purpose and multipurpose. This pragmatic form of governance made it possible for the communes to preserve their identity and their decision-making autonomy, which is the basis of the French traditional model of local democracy. But it is rather important to face the new challenges posed by inter-city competition across Europe, by continuing urban growth, and by the reinforcement of residential segregation. The recent creation of `Grand Toulouse', a metropolitan two-tier government with many competences and a taxing power appears to bring an institutional solution, but one can wonder if local leaders will try to make it simply another co-ordinating mechanism. This revised version was published online in August 2006 with corrections to the Cover Date.     

Beyond passive consumption: Dis/ordering water supply and sanitation at Hanoi’s urban edge

In Hanoi people access, expand and create water and sanitation infrastructures in multiple ways that include, but are not restricted to, external provision of networked services. Urban master planning and the construction of large technological networks aim at integrating the urban region based on circulating ‘modern ideals’ of ubiquity and standardization of infrastructures. However, centralized infrastructure provision has remained unstable and spatially uneven. We examine differently networked spaces that have emerged at the edge of Hanoi along with rapid urban change and new financing mechanisms in the past thirty years, and the ways in which urban residents engage with the various water and sanitation systems. This engagement is shaped by circulating ideals, place-specific processes of urban re-production, sector-specific dynamics, and individuals. Not only in periurban villages, but also in modern housing estates, people rebut a role as passive receptors of external services. In some instances, they create relatively stable collectives through which they provide, negotiate and complement networked infrastructure connection. Thus, people living at Hanoi’s urban edge actively re-produce water and sanitation systems beyond passive consumption of externally provided services.     

Expanding networks for the urban poor: Water and telecommunications services in Lima, Peru

In many cities of the developing world, poor residents occupy land and build their dwellings before infrastructure is provided. Expanding the infrastructure networks for the poor is a long, expensive and complicated affair. Before the 1990s, the public sector was generally in charge of the basic services; but these services have been liberalized and, in many cases, privatized since then. In this new context, a relevant question is: have these reforms contributed to urban integration? Or, on the contrary, have they contributed to deepen urban fragmentation? This study presents the case of water and telecommunications services in Lima, Peru, the most contested and politically sensitive urban sectors. The objective is to test Graham and Marvin’s claims about the splintering of networked infrastructures expressed in Splintering Urbanism.The findings show that the reforms have improved the situation at aggregate level, but there is still no sustainable solution for the crucial dilemma of cities with high poverty restrictions: self-financed network expansions versus service affordability. The diverging paths of the utilities reform in Lima illustrate that privatization is not the main issue in the discussion to expand the networks for the poor. The main conclusion is that sensible policies complemented with carefully targeted subsidies and continuous regulation can successfully provide water for all. Good governance practices at the urban level help to achieve this goal. Water and telecommunications in Lima also show that are no general solutions for the universalization of the services; each city is different and some sectors are much more complex and problematic than others. This demands careful and continuous technical and political consideration of the local circumstances to reform the utilities.     

Unbundling Stockholm: The networks, planning and social welfare nexus beyond the unitary city

This paper focuses on the extent to which recent infrastructure-oriented urban developments in Stockholm concord with various aspects of the ‘splintering urbanism’ thesis of Graham and Marvin. This contextualisation allows us to extend their work empirically and conceptually. In the first instance, we study a particular case of the decline of a unitary networked city (in an urban context largely absent from their book). In the second instance, we develop their notion of ‘unbundling’ to capture not just core changes in the organisation of infrastructure provision, but an overarching disjunction of the established nexus between networks, planning and social welfare in the city. This disjunction operates through interlinked transformations concerning, for example, privatisation and outsourcing in network services, separation of infrastructure planning from broader urban planning, contradictions between the environmental and social mandates of infrastructure, and a (prospective) curtailment of the redistributive, social role of essential network service provision. We conclude nonetheless that this ‘destructive’ moment of unbundling has not so far been pursued by more explicitly ‘creative’ urban fragmentation strategies, due largely to the vestiges of a socio-political consensus based around redistribution and equality. In this respect, the Stockholm case pleads for a conception of ‘splintering’ as a dynamic and multi-stage process which is not only always ongoing, unstable and incomplete, but also non-linear and open to resistance/regulation.     

Urban Planning in Hong Kong and Integration with the Pearl River Delta: A Historical Account of Local Development

This paper shows the importance that urban planning plays in the development of Hong Kong. This leads to a reassessment of the role of the government, which is the sole proprietor of the land, in the economy – while it acknowledges the importance of market forces. The first part shows how, since 1945, Hong Kong authorities have been obliged to intervene more in urban planning and local development, despite their liberal ideology. The second part focuses on the interaction between government action and market forces, and their influence in this development. The third part deals with the question of the economic integration between Hong Kong and the Pearl River Delta (PRD) after China started its economics reforms in 1978. The deconcentration of Hong Kong industries to China was mainly due to market forces, but provided a new role for the government. This role is analyzed through its transportation policy – the domain with the most visible governmental intervention before and after 1997. It indicates the preference of the government to develop the territory rather than better integration with the PRD, because of the internal economic problems that may emerge from this integration. Nevertheless, for political and economic reasons, this integration is also seen as necessary. The future of Hong Kong’s economy lies in the answers the authorities will give to this dilemma.     

Splintered networks: The colonial and contemporary waters of Jakarta

This paper queries the relevance of the ‘splintering urbanism’ thesis to postcolonial cities of the South, and responds to calls for the production of a decentered theory of urbanization through a case study of Jakarta. Drawing on archival and interview data, the paper demonstrates that Jakarta has, since its inception, been characterized by a high degree of differentiation of access to water supply, and of fragmentation of water supply networks. We document the origins of this fragmentation in the colonial era, and trace the legacy of the colonial constructions within the postcolonial city. Moreover, we demonstrate that the introduction of private sector management (in 1988) has not significantly disrupted, and certainly not caused, this pattern. In short, we provide evidence to support our claim that Jakarta’s water supply system is ‘splintered’ rather than ‘splintering’, and demonstrate that this phenomenon was not caused by the rise (or fall) of the ‘modern infrastructural ideal’. In order to explain this sustained fragmentation of infrastructure and access, the paper develops a conceptual framework of postcolonial governmentality that emphasizes the interrelationship between materiality, governmentality, identity, and urbanization, in particular through demonstrating how contested and evolving process of social differentiation are linked to the differentiation of water supply infrastructures and of urban spaces. Although we are wary of any simplistic comparisons between the colonial past and present, we argue that the optic of postcolonial governmentality provides a powerful lens for dissecting the power relations that continue to structure access to water supply and urban space in cities in the South.     

Urban Planning in Hong Kong and Integration with the Pearl River Delta: A Historical Account of Local Development

This paper shows the importance that urban planning plays in the development of Hong Kong. This leads to a reassessment of the role of the government, which is the sole proprietor of the land, in the economy – while it acknowledges the importance of market forces. The first part shows how, since 1945, Hong Kong authorities have been obliged to intervene more in urban planning and local development, despite their liberal ideology. The second part focuses on the interaction between government action and market forces, and their influence in this development. The third part deals with the question of the economic integration between Hong Kong and the Pearl River Delta (PRD) after China started its economics reforms in 1978. The deconcentration of Hong Kong industries to China was mainly due to market forces, but provided a new role for the government. This role is analyzed through its transportation policy – the domain with the most visible governmental intervention before and after 1997. It indicates the preference of the government to develop the territory rather than better integration with the PRD, because of the internal economic problems that may emerge from this integration. Nevertheless, for political and economic reasons, this integration is also seen as necessary. The future of Hong Kong’s economy lies in the answers the authorities will give to this dilemma.     

The post-industrialising city: political perspectives and cultural biases

Many Western cities face marked changes that are associated with post-industrialisation of the urban environment. In this article, four political perspectives on the threats and opportunities associated with post-industrialisation are discussed: liberal productivism; communitarianism; institutional perfectionism and participative democracy. In cultural terms these four approaches appear to be remarkably biased. As such, they are unlikely to match the complicated, confusing and unpredictable processes that are taking place in Western cities. The complexities of post-industrialisation demand cultural variety in the public domain. This, in turn, requires connectivity and openness in the institutions that structure urban politics and urban policy making. This revised version was published online in August 2006 with corrections to the Cover Date.     

Milan: The city of constant renewal

Traditional models of urban development are no longer adequate to describe current metropolitan transformations. These are now at the centre of a debate concerning management and administration. In Italy, delays in resolving problems of urban and metropolitan government, despite the legal framework provided by Law 142/90, have weighed heavily on the larger urban areas of the country: Rome, Naples, Milan, which have not been able to tackle the issue of metropolitan government. Recent legislation, while not providing a pre-defined institutional solution, allows separate administrative districts to collectively establish metropolitan institutions of `variable geometry'. The Milan urban area is not one city, but a system of mutually-dependent cities, linked to each other and the rest of the world by a transport network still requiring much investment. The vitality of its economic structure (especially its small firms) is held back by seriously inadequate infrastructure and low external economic efficiency. The provincial capital may boast `historic centrality' but the most interesting potential for development is to be found on the periphery and in the administrative districts immediately surrounding it, in the recovery of derelict industrial areas and dormitory towns established in the 1950s and 1960s, especially to the north. Recovery of derelict areas, green areas, and better transport links within the urban area and with the outside world are the key elements in the reorganization of `Greater Milan'. In this situation of rapid transformation the most appropriate political strategies involve negotiated planning. This revised version was published online in August 2006 with corrections to the Cover Date.     

Multiethnic Rome: Toward residential segregation?

This research examines the presence of foreign national residents in Rome, through an examination of their distribution and localisation in different administrative districts. Since there is a close relationship between localisation and access to services, job opportunities, linguistic integration, and education, the residential patterns of migrant communities need to be explored in order to foster the process of ethnic integration. The 1998 census is used to analyze the presence of foreign nationals both in the districts and in the different urban zones of the Capital. For this reason it is possible to apply the index of segregation to 7 foreign national groups and then produce maps which detail where these groups are concentrated. The study also discusses public policy issues in order to improve the process of integration of different ethnic groups in Rome.     

Governing Metropolitan Lisbon: A tale of fragmented urban governance

This article is concerned with the nature of the present governance framework in the Lisbon metropolitan area and with the conditions responsible for the lack of any consistent intergovernmental and inter-tier co-ordination. It shows how Lisbon, where a form of metropolitan government was introduced only in 1991, is different from other European cities, but at the same time similar with regard to the limits associated with the associative or (polycentric) model adopted. The article concludes by discussing alternative scenarios for the reform of metropolitan government as well as the institutional and policy challenges facing the Lisbon metropolitan area. This revised version was published online in August 2006 with corrections to the Cover Date.     

New Europe; a political geography of fragmented unity

The Europe of the European Union has an ever more important set of policy arenas at the European level, still strong states, and a series of strong regions that put their demands on the table. The EU is deeply involved in its immediate surroundings and it acts in conjunction with member states in global policy forums. Europe is an unprecedented example of multi-level, multi-sector governance. Europe has been politically re-ordered on a number of occasions and this is one of them. In the current debate abundant use is made of historical examples. The new Europe is in need of institutional re-structuring. Following the traditions of European cooperation this is very slow in coming. Geographers should particularly be concerned with the consequences of terrioriality at several scales simultaneously.     

Sustaining China’s large rivers: River development policy,impacts, institutional issues and strategies for future improvement

The sustainable management of China’s rivers is very important to the well-being of both the environment and its people. Yet the country’s rivers are now facing imminent threats from river overexploitation. The deteriorating condition serves as a stark reminder that relevant policies must be revised to ensure their wiser stewardship. In this short critical review, we first briefly stated river development history and various impacts arising from river overexploitation. We then elaborated the issues in river management, which connived numerous behaviors neglecting river degradation happened at all institutional levels. Based on the weakness, we proposed some policy recommendations to sustain China’s rivers and balance river development and conservation. The article concludes by proposing the development of a national river protection law to reinforce integrated river management, improve the implementation of environment impact assessments, and fulfill long-term goals for river conservation and sustainable development.     

Analyzing spatial disparities in access to health care: A methodology with application in Bangladesh

This paper develops a methodology for analyzing spatial disparities in access to health care in situations where the data base is limited, and applies it in the context of Bangladesh. The proposed indirect measures of inpatient and outpatient service utilization, and of quality of available services, seem to provide reasonably accurate, consistent, and interpretable results; these indices are combined into a composite index of relative access to health care. The form of the composite index and its components permits the incorporation of Sopher's disparity index into the methodology for measuring urban-rural disparities in relative access to health care. The empirical analysis based on subdivision level data revealed that Bangladesh's health care delivery system is, in general, characterized by extremely low level of access and a high degree of disparity in favor of urban areas, especially in terms of inpatient services. Spatial patterns of relative access and urban/rural disparity were perused through cartographic and statistical analyses; although clear-cut regional patterns did not emerge, the considerable spatial variations could be explained largely with reference to urbanization and density of population. Assuming improved level of access and minimal urban/rural disparity as basic policy goals a method to prioritize spatial units for future allocation of health sector resources is recommended.The author gratefully acknowledges the helpful comments on an earlier draft of this paper by Dr. S. M. Bhardwaj, Professor of Geography, Kent State University.     

Geo-historical Trajectories of Democratic Transition: The Case of Nigeria

There has been a long-term, halting diffusion of the liberal democratic state. The literature on democratization, however, tends to underplay issues of geo-historical context. This paper addresses the relationship between geo-historical context and democratization through a case study of Nigeria. Key contextual factors of transition discussed include: international pressure for democratization, geo-political dynamics of pro-democracy coalitions, and local and trans-local political economic relationships. Nigeria under the military governments of Babangida and Abacha (1985–1998) was in a perpetual half-hearted state of transition to democracy. The country's status as a major oil exporter allowed it relative immunity from international pressure for democratization. Beyond repression and neo-patrimonialism, both governments deployed a distinctly spatial resistance strategy, that of state creation. The generals tried to shift attention away from regime failures and excesses, notably the illegitimacy of military rule and economic decline. Mobilization for state creation served to divide opposition to military government because it focused attention at the local scale, as new state movements competed for access to centrally controlled resources and political recognition of their ethno-regional group(s). This transition period produced several legacies for Nigeria's Fourth Republic (1999-). These include: a dysfunctional national state apparatus; problems of national disunity; and a stagnant economy. These legacies of transition present major obstacles to national development and the consolidation of a liberal democratic state. The Nigerian case points to a broader need for an understanding of geo-historical context in assessing prospects for the spread of democracy. This revised version was published online in August 2006 with corrections to the Cover Date.