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THE RIGHT TO A ‘WORLD CLASS CITY’?: STREET TRADING, PUBLIC SPACE AND URBAN GOVERNANCE IN THE CAPE TOWN CITY CENTRE Jens Horber HRBJEN001 Dissertation presented as part fulfilment of the degree of Masters of City and Regional Planning in the School of Architecture, Planning and Geomatics University of Cape Town November 2017 DECLARATION OF FREE LICENCE I hereby: (a) grant the University free license to reproduce the above thesis in whole or in part, for the purpose of research; (b) declare that: (i) the above thesis is my own unaided work, both in conception and execution, and that apart from the normal guidance of my supervisor, I have received no assistance apart from that stated below; (ii) except as stated below, neither the substance or any part of the thesis has been submitted in the past, or is being, or is to be submitted for a degree in the University or any other University. (iii) I am now presenting the thesis for examination for the Degree of Master of City and Regional Planning. Jens Horber 3 November 2017 2 ACKNOWLEDGEMENTS I would like to share my deepest gratitude to my research participants who privileged me with a generous sharing of their experiences. Without their participation, this dissertation would not have been possible. I would like to thank my supervisor, Dr. Tanja Winkler, for her steadfast support, motivation and enthusiasm throughout the year. Her insightful guidance gave me the opportunity to fully immerse myself in my research and enjoy the experience. I would also like to thank her for challenging me, and pushing me to challenge myself. Last, I would like to thank my MRCP colleagues, housemates, friends and family for their moral support, understanding and interest. I am who I am through others. 3 ABSTRACT There is a long history of street trading restriction The research findings indicate that the City of Cape in South Africa, and the relocation of traders from Town tends to adopt a more restrictive approach to key public spaces in Cape Town, in connection with managing traders on the Grand Parade, and that this renovation and construction for the 2010 FIFA World has, effectively, a negative impact on trader livelihoods. Cup, highlighted the contested nature of street trading This approach serves to produce informal arrangements, in the Cape Town city centre. The Grand Parade, South aggression and resistance on the part of traders. A Africa’s oldest public space, sits adjacent to the city’s disjuncture is found between the stated developmental major public transport hub, and plays a vital role in the approach of the City’s Informal Trading Policy (informed daily lives of many city residents. Therefore, public space by national developmental policies) and its practices. The contestations, and the informal sector’s importance combination of organisational restructuring processes, in job creation and poverty reduction, necessitate an confused mandates as well as the low political and investigation into the impacts of the City of Cape Town’s funding priority given to street trading management street trading management approach on the livelihood has meant that the complex of socio-economic factors strategies of traders on the Parade. and persistent management issues on the Parade, that require interdepartmental cooperation to address, I review relevant literature on street trading continue to negatively impact trader livelihoods. management, and develop criteria for assessing the City of Cape Town’s street trading management approach. I recommend that the City of Cape Town, in line with These criteria are linked to Lefebvre’s (1968) and the aims contained in its Informal Trading Policy, and Fainstein’s (2010) concepts of ‘the right to the city’ and inspired by the ‘eThekwini model’, implement a more ‘the just city’ respectively. The main research question progressive street trading management approach that thus asks: What is the impact of the City of Cape Town’s is based on participatory and area-based approaches. street trading management approach on the livelihood A dedicated focus on capacitating trader organisations strategies of traders on the Grand Parade? The research through training initiatives is recommended, as well as uses the case study and discourse analysis methods to changes to trading permit application processes and address this question. Data is collected through non- conditions. Lastly, specific recommendations are also participant observation and individual semi-structured made to better enable livelihood strategies of street interview techniques. The focus is on capturing the traders on the Grand Parade. views and experiences of traders on the Grand Parade. 4 CONTENTS CHAPTER 1 2.5.3. Restrictive street trading management approaches 26 2.6. Genius loci 27 1.1. Purpose of this Chapter 10 2.7. Innovative and progressive implementation of street trading 1.2. Informal Trading and Street Trading 10 management 28 1.3. The Background to the Study: an overview of the history 2.8. Trader organisations 32 of informal trading policy in South Africa 11 2.9 Conclusion 33 1.4 Identifying the issue under study 12 1.5. Establishing the Aim of the Study 14 CHAPTER 3 1.6. Establishing the Main Research Question 14 1.6. Structure of the Dissertation 15 3.1 Introduction 37 3.2. Research Methods 37 CHAPTER 2 3.2.1. Case Study Method 37 3.2.1.1 The Case: The Grand Parade 39 2.1. Introduction 18 3.2.2. Discourse Analysis Method 40 2.2. The importance of the informal economy 18 3.2.3. Positioning 41 2.2.1. Food security 18 3.3. Research Techniques 41 2.2.2. The importance of street trading in Cape Town 19 3.3.1. Non-Participant Observation 41 2.3. Informal Sector Policy environment 19 3.3.2. Individual interviews 42 2.3.1. National Government 19 3.4. Reactivity and verification bias 43 2.3.2. Provincial government policies 20 3.5. Sampling Procedures 43 2.4. South Africa: The disjuncture in approaches to street 3.6. Ethical Considerations 44 trading management 20 3.7. Data Analysis 44 2.4.1. Right to the city 20 3.8. Conclusion 45 2.4.2. The just city 21 2.4.3. Spaces of participation 23 CHAPTER 4 2.4.4. The disjuncture between developmental policies and restrictive practices 23 4.1. Introduction 47 2.5. Street trading management models 25 4.2. History of trading on the Parade: a snapshot 47 2.5.1 The meaning of ‘management’ 25 4.3.1. Current trading and management arrangements 2.5.2 Progressive and sustainable management models 25 on the Parade 50 5 4.3.2. Trader associations, leases and permits 52 5.4.2.2. Multiple stakeholder street trading forums 70 4.3.3. Operational management 53 5.4.2.3. Consolidated and capacitated street trader 4.3.4. Safety and security 53 organisations 71 4.4. Conclusion 55 5.4.2.4. Existence of a dedicated street trading management institution 71 CHAPTER 5 5.4.2.5. Area-based street trading management processes and institutions 73 5.1. Introduction 57 5.5. Alignment of management practice with the City’s Informal Trading Policy 74 5.2. Assessing street trading management on the Grand 5.6. Conclusion 78 Parade based on criteria for restrictive management 57 5.2.1. Criminalising the poor and hindering livelihood CHAPTER 6 strategies 57 5.2.2. Engendering municipal corruption, violence and 6.1. Introduction 83 mismanagement 59 6.2 Establishing Answers to the Main Research Question 83 5.2.3. Fostering informal arrangements, patronage and 6.3. Recommendations 84 aggression between traders 60 6.3.1. Recommendations for street trading policy and 5.2.4. Producing resistance and adaptation on the management in the Cape Town city centre 84 part of traders, both collectively and individually 62 6.3.1.1. The ‘eThekwini model’ as a guide 84 5.3. Assessing street trading management on the Grand Parade 6.3.1.2. Trading permits 86 based on criteria for a positive ‘genius loci’ and impact 6.3.1.3. Trader associations 87 on trader livelihood strategies 63 6.3.1.4. Spaces of participation 87 5.4. Assessing street trading management on the Grand Parade 6.3.2. Street trading policy and management recommendations based on criteria for progressive street trading management 63 for the Grand Parade 88 5.4.1. Developmental 63 6.3.2.1. Street trading management function 88 5.4.1.1. Ease of access to new entrants with limited 6.3.2.2. Permits and leases 88 financial apitalc 64 6.3.2.3. Use of space on the Grand Parade 89 5.4.1.2. Support and services to sustain livelihoods 66 6.3.2.4. Storage and trolley pushers 90 5.4.1.3. Differentiated support structures for 6.3.2.5. Self-management 90 survivalist and entrepreneurial street traders 68 6.4 Limitations to the study 91 5.4.2. Pragmatic 68 6.5. Reflections 91 5.4.2.1. Street trading management based on 6.6. Conclusion 92 participatory processes 68 7.1 References 96 6 LIST OF FIGURES & TABLES FIGURES: Figure 4.2 “Smallie Hendriks has worked Parade including trader association on the Grand Parade since 1958”. representation Cover image Saturday market on the Grand Parade Here, according to Hendriks, “nothing (Source: Lonely Planet, 2017) changes, except the prices” Figure 4.10 Wednesday and Saturday market stalls Figure 1.1 The Grand Parade in the context of the Cape Town city centre Figure 4.3 “A customer makes a considered Figure 4.11 Storage spaces in Buitenkant, selection. Nowhere else in Cape Town Harrington, and Roeland Streets & Figure 1.2 The Grand Parade and surrounds will they have so much fruit to choose District Six from” Figure 2.1 Operation Clean Sweep Figure 4.12 Location of Civic Centre in relation to Figure 4.4 Location and arrangement