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'Ungovernable'? Who Governs the ‘Ungovernable’? Examining Governing Relations in Urban Informality Redento Recio Master of Arts in Urban and Regional Planning Bachelor of Science in Community Development A thesis submitted for the degree of Doctor of Philosophy at The University of Queensland in 2018 School of Earth and Environmental Sciences Abstract For several decades now, Metro Manila’s Baclaran district has been home to thousands of street vendors who have capitalised on its functions as a commercial centre, a transport node, and a Filipino Catholic devotional site. This presence of informal hawkers, which some government officials consider as an urban blight, has generated a range of policies that seek to manage, if not eradicate, the informal hawkers. Years of street occupancy, however, have enabled the tenacious vendors to enforce grassroots mechanisms to appropriate streetscapes. I refer to this interplay of state interventions and grassroots practices as the formal-informal interface. Seen from an urban planning perspective, the Baclaran context offers an opportunity for scholarly inquiry into how the complex spatio-political ordering and socio-economic realities unsettle the essentialist formal-versus-informal categories of work and state interventions. Indeed, as many global South cities face poverty and unemployment, poor people continuously engage in informal economy. Over 50% of urban labour force in developing countries is informal and street vending is seen as the most visible informal livelihood. Despite the growing recognition of informality, it has often been linked to ungovernable practices. Ungovernability, however, is never devoid of state intervention. The literature shows how state institutions use formal and informal approaches to manage livelihoods like street vending. Yet, there is limited empirical research that investigates the formal-informal interface in governing and appropriating contested vending spaces. My thesis addresses this gap. Building on a combination of theories from planning, sociology, and political science, I problematize the question ‘How can the interface of formal systems and informal mechanisms to govern and appropriate contested vending spaces be explained?’ Employing documentary review, observation, in-depth interviews, focus group discussions, and life-history accounts in gathering data, this qualitative research focuses on street vending in Baclaran, one of the Philippines’ largest informal hawking districts. In this thesis I argue, first, that understanding the formal-informal interface in contested vending spaces requires situating the location of informal vending in the broader historical, spatial, political and economic trajectories of the surrounding environment. Second, problematizing the formal-informal interface demands what I call a post-dualist lens. Post- dualist lens contends that structural factors and agency expressions underpin the formal i and informal economic practices. It seeks to interrogate the factors, forces, and frictions (relations) involved in the formal-informal interface. Third, examining the formal-informal interface entails unpacking five governance dimensions: a) players, b) policies, c) practices, d) governing relations, and e) planning implications. The analysis of these dimensions shows how the co-optation and contestation in state policies and informal arrangements are rooted in multi-layered and unequal socio-spatial relations. Thus, rather than merely documenting the growing ‘informalization’, these empirical results call for a rearticulation of how, and to what extent, state interventions and/or institutional neglect deepen the precarious conditions of informal workers like street vendors. In sum, these findings reveal how understanding the formal-informal interface contributes to the evolving conceptual and empirical conversations on worlding cities. The Baclaran case shows how worlding practices arise from the interplay of global North-oriented planning ideals and policy approaches, the unequal socio-spatial relations, and the continuing struggle of marginalized street vendors in the global South. These issues require rethinking of policy direction and planning trajectory. ii Declaration by author This thesis is composed of my original work, and contains no material previously published or written by another person except where due reference has been made in the text. I have clearly stated the contribution by others to jointly-authored works that I have included in my thesis. I have clearly stated the contribution of others to my thesis as a whole, including statistical assistance, survey design, data analysis, significant technical procedures, professional editorial advice, financial support and any other original research work used or reported in my thesis. The content of my thesis is the result of work I have carried out since the commencement of my higher degree by research candidature and does not include a substantial part of work that has been submitted to qualify for the award of any other degree or diploma in any university or other tertiary institution. I have clearly stated which parts of my thesis, if any, have been submitted to qualify for another award. I acknowledge that an electronic copy of my thesis must be lodged with the University Library and, subject to the policy and procedures of The University of Queensland, the thesis be made available for research and study in accordance with the Copyright Act 1968 unless a period of embargo has been approved by the Dean of the Graduate School. I acknowledge that copyright of all material contained in my thesis resides with the copyright holder(s) of that material. Where appropriate I have obtained copyright permission from the copyright holder to reproduce material in this thesis and have sought permission from co- authors for any jointly authored works included in the thesis. iii Publications during candidature Peer-reviewed Journal Articles Recio, R. B. (2015). Engaging the ‘ungovernable’: Urban informality issues and insights for planning. Journal in Urban and Regional Planning, 2(1), 18-37. Recio, R. B., Mateo-Babiano, I., & Roitman, S. (2017). Revisiting policy epistemologies on urban informality: Towards a post-dualist view. Cities, 61, 136-143. doi:10.1016/j.cities.2016.08.018 Peer-reviewed Conference Papers Recio, R. B. (2014). Grassroots agency and social inclusion: Prospects and limits of collective action in urban informality. ARCHCAIRO 2014: 6th International Conference - Responsive Urbanism in Informal Areas (Towards a Regional Agenda for HABITAT III), 379- 395. (25-27 November 2014, Cairo, Egypt). Recio, R. B. (2016). Evictions and urban socio-spatial relations: Evidence from a Southeast Asian Metropolitan Area. Refereed Proceedings of The Australian Sociological Association Conference, 292-299. (28 November – 01 December 2016, Melbourne, Australia). Recio, R. B., Roitman, S., & Mateo-Babiano, I. (2017). Economic Spaces and Mobility Nodes: Exploring the Relationship of Urban Informal Trading to Transport and Land Use. World Symposium on Transport and Land Use Research. (3-6 July 2017, Brisbane, Australia). Conference Abstracts Recio, R. B. (2016). Who governs the ‘ungovernable’? Examining the modes of governance in urban informality. IV World Planning Schools Congress – Global Crisis, Planning and Challenges to Spatial Justice in the North and in the South. (3-8 July 2016, Rio de Janeiro, Brazil). iv Recio, R. B. (2016). Examining the modes of governance in urban informality. Australasian Early Career Urban Research Network – Queensland Research Symposium. (28 September 2016, Brisbane, Australia). Recio, R. B. (2016). When planning becomes unresponsive: The constraints of Philippine urban planning in confronting informality. International Research Forum on the Philippines – Anticipating Futures: Opportunities & Challenges for the Philippines. (21-22 November 2016, Melbourne, Australia). Recio, R. B. (2018). Baclaran and the Neoliberal Metropolis: how Long can the Informal Vendors Last? The 5th Asia-Pacific Regional Conference on Community Development: Reflexive Community Development Practice Amidst Complex Realities and Alternative Movements. (22-23 January 2018, Manila, Philippines). Publications included in this thesis Recio, R. B. (2014). Grassroots agency and social inclusion: Prospects and limits of collective action in urban informality. ARCHCAIRO 2014: 6th International Conference - Responsive Urbanism in Informal Areas (Towards a Regional Agenda for HABITAT III), 379- 395. (25-27 November 2014, Cairo, Egypt). – Incorporated in part in Chapters 2 & 3. Recio, R. B. (2015). Engaging the ‘ungovernable’: Urban informality issues and insights for planning. Journal in Urban and Regional Planning, 2(1), 18-37. – Incorporated in part in Chapters 2 & 3. Recio, R. B. (2016). Evictions and urban socio-spatial relations: Evidence from a Southeast Asian Metropolitan Area. Refereed Proceedings of The Australian Sociological Association Conference, 292-299. (28 November – 01 December 2016, Melbourne, Australia) – Incorporated in part in Chapter 7. Recio, R. B., Mateo-Babiano, I., & Roitman, S. (2017). Revisiting policy epistemologies on urban informality: Towards a post-dualist view. Cities, 61, 136-143. doi:10.1016/j.cities.2016.08.018 – Incorporated in part in Chapters 2 & 3. v Contributor Statement of contribution Redento B. Recio (Candidate) Conception and design (90%) Analysis and interpretation (80%) Drafting and production (90%) Iderlina Mateo-Babiano Conception and
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