Source: The Conversation – Africa – By Astrid R.N. Haas, Research associate at African Centre for Cities, University of Cape Town
For decades, the dominant theories and models in urban studies have been built from the experience of a small set of mostly western cities. Other urban contexts, particularly those in Africa, Latin America and Asia, have too often been treated as peripheral, as if they simply copy or lag behind “northern” norms.
Urban geographer Jennifer Robinson has called this out, arguing that urban theory needs to take seriously the diverse realities of all cities. This means starting from places like Johannesburg, South Africa’s commercial capital, and São Paulo, Brazil’s financial capital, not just as isolated case studies, but rather as central sites for understanding dynamic urban processes. The majority of urbanisation in the coming decade will take place in contexts just like these.
I came to Urban Power, a book written by professor of sociology and international affairs at Princeton University Benjamin Bradlow last year, with this framing in mind.
Bradlow’s focus is on three essential urban public goods in São Paulo, population 22 million people, and Johannesburg, population 6.5 million people: housing, transport and sanitation.
His central question is: why are some cities more effective than others at reducing inequalities in the built environment?
The answer lies in what Bradlow calls urban power.
What is ‘urban power’?
Bradlow defines urban power as the way formal and informal relationships come together in a city that influences how that city is governed and ultimately how the public services and infrastructures are distributed across the urban space. Two elements determine how well this functions in any given city context.
First, embeddedness – the ties between city government and social movements in civil society. Second is cohesion. This is the abiltiy of city governments to coordinate across their own departments and agencies.
Bradlow argues that effective urban power is built when both embeddedness and cohesion are strong, as these determine how well policy is informed by and accountable to those most affected.
Thus struggles to build and exercise such power form a core foundation of urban governance. This ultimately shapes both the distribution of urban public goods and how effectively they reach the most marginalised.
Basically, it’s about how those in power are willing and able to coordinate with society and within government to meet everybody’s needs fairly.
Housing: different paths
As São Paulo (1980s) and Johannesburg (1990s) entered their democratic eras, both were led by mayors who explicitly committed to redistributing wealth by extending adequate housing to the most excluded neighbourhoods.
Yet, housing is also the sector in which Bradlow finds some of the starkest contrasts in outcomes between the two cities.
During South Africa’s democratic transition, the rallying cry of “one city, one tax base” brought together neighbourhood associations, social movements and local branches of trade unions. To overcome the fiscal fragmentation left by apartheid, wealthy and largely white areas of the city were to contribute property taxes to a central fiscal administration. This central body would then cross-subsidise precisely the new capital investments in poor black townships.
But in the years that followed, the governing African National Congress (ANC) party demobilised social movements in favour of a centralised one-party system.
The effects of this were evident in Johannesburg. Weakened ties between the city government and civil society (embeddedness) led to the municipal bureaucracy becoming increasingly detached from housing movements. As a result, it was poorly positioned to challenge the dominance of private real-estate interests.
In São Paulo, the municipal bureaucracy maintained close ties with housing movements. It used this embeddedness to build cohesion within its own ranks. This enabled the city to make use of national mandates to challenge the power of real-estate interests and introduce innovations that expanded social housing.
Central to this effort was the 2001 City Statute. This piece of legislation enshrined the “social function of property,” a constitutional right, at the city level. The legal framework unlocked tools such as the Special Zones of Social Interest (ZEIS), which reserved well-located land for social housing.
Crucially, São Paulo became one of the first major Brazilian cities to adopt a master plan that explicitly advanced the redistributive goals of housing movements.
São Paulo’s housing story is far from perfect. And the city still struggles to meet the demand for affordable housing. Nevertheless, it has made important strides.
Transport: institutions or technology first?
Bradlow illustrates how São Paulo pursued an “institutions first” approach towards transport. For years, social movements had pressed for lower fares and better services to the city’s peripheries. Responding to these demands, the Erundina administration (1989-1992) restructured the relationship between private bus operators and the municipal concessioning authority. Fare revenue was collected by the authority itself. It then paid operators based on the quality and quantity of service provided.
This shift allowed the city to introduce reforms like the bilhete único, a single ticket valid across the entire network. It meant that shorter trips subsidised longer ones. This made access more equitable regardless of where one lived. In addition, large and small operators were integrated into a single system, revenue became more predictable, and planning could prioritise network-wide benefits.
Johannesburg, by contrast, led with a “technology first” approach. The Bus Rapid Transit (BRT) system, Rea Vaya, emerged in the early 2000s. However, the minibus taxi operators, who were the backbone of existing transport, were largely excluded from the planning process.
The BRT’s economics were challenging from the outset, given Johannesburg’s spatial fragmentation. Operators were offered shares in newly created bus companies if they withdrew their taxis. But this arrangement relied on an untested profit model.
Institutional complexity (lack of cohesison) compounded the problem. Operational licences and recapitalisation were controlled at the provincial rather than the municipal level. Most importantly, the lack of embeddedness meant that resistance from the local operators was almost inevitable.
The comparison of the transport sector highlights a recurring theme. São Paulo’s slower, messier process fostered embeddedness. It treated redistribution through collective transport as a political project rather than a technocratic exercise. Johannesburg pursued a faster, technology-driven route that bypassed the negotiations which might have made the system more sustainable.
Sanitation: building accountability
If housing is a residential public good and transport a networked one, sanitation sits in between. It’s delivered to individual homes, but reliant on city-wide infrastructure.
Bradlow highlights how in São Paulo, the municipal government succeeded in creating downward accountability from the state-level sanitation company (cohesion). By doing so, it shifted decision-making power closer to the local level. This ensured that service priorities better reflected the city’s everyday realities rather than distant state-level agendas.
The new alignment made it possible to extend services into informal settlements without requiring formal tenure, a critical flexibility that had long been a barrier to inclusion. At the same time, it strengthened municipal planning and coordination capacity. Service delivery became more firmly embedded within the city’s own governance structures.
In Johannesburg, by contrast, weak cohesion, reflected in the lack of planning integration, meant housing projects were often implemented without corresponding sanitation infrastructure. Reforms had separated sanitation from broader spatial planning, fostering fragmented governance.
The city also adopted a model shaped by private-sector principles. Examples include self-financing, performance-based contracting, and competition. In practice, these led to service cuts in poorer areas where cost recovery was impossible.
The comparison illustrates how the same broad national reform agenda can play out very differently depending on municipal capacity and institutional alignment (cohesion).
Why the comparison matters
Cross-context comparisons reveal patterns and possibilities that single-city studies might miss. Bradlow’s book illuminates how rapid urbanisation, entrenched inequality and fiscal constraints intersect. These insights have significance far beyond these cases.
His book is a call for urban theory to start from the global south not as an afterthought, but as a foundation. As urban studies specialist Jane Jacobs observed:
Cities have the capability of providing something for everybody only because, and only when, they are created by everybody.
Bradlow’s book shows, with precision, what it takes, politically and institutionally, to make that vision real.
For anyone interested in the politics of making cities fairer, it is essential reading.
– Africa’s city planners must look to the global south for solutions: Johannesburg and São Paulo offer useful insights
– https://theconversation.com/africas-city-planners-must-look-to-the-global-south-for-solutions-johannesburg-and-sao-paulo-offer-useful-insights-263285
