Community Leadership and the Construction of Political Legitimacy: Unpacking Bourdieu's ‘Political Capital’ in Post‐Apartheid Johannesburg

Apart from local monographs and normative texts on community participation, research on community leadership constitutes a blind spot in urban leadership, urban politics, social movements and urban studies. This article, based on case studies in post‐apartheid Johannesburg, contributes to theorizing community leadership, or informal local political leadership, by exploring Bourdieu's concepts of ‘political capital’ and ‘double dealings’. Considering community leaders as brokers between local residents and various institutions (in South Africa, the state and the party), we examine how leaders construct their political legitimacy, both towards ‘the bottom’ (building and maintaining their constituencies), and towards ‘the top’ (seeking and sustaining recognition from fractions of the party and the state). These legitimation processes are often in tension, pulling community leaders in contradictory directions, usefully understood under Bourdieu's concept of ‘double dealings’. Community leaders are required, more than formally elected political leaders, to constantly reassert their legitimacy in multiple local public arenas due to the informal nature of their mandate and the high level of political competition between them — with destructive consequences for local polity but also the potential for increased accountability to their followers. We finally reflect on the relevance of this theoretical framework, inspired by Bourdieu, beyond South African urban politics.     

Welcoming Refugees and the Cultural Wealth of Cities: Intersections of Urban Development and Refugee Humanitarianism

In a context of rising nativism, cities across liberal democracies are enacting agendas to ‘welcome’ migrants and refugees. Existing scholarship examines this contentious political geography as reflecting either accommodative or restrictive responses to local immigrant populations. Through this lens, pro‐immigrant policies and dynamics are seen to recognize and support a set of pre‐defined immigrant ‘interests’, with the pertinent question being which local actors initiate processes of incorporation and why. Drawing on urban scholarship, this article offers an alternative framework through an analysis of resettled refugees’ experiences within the ‘welcoming agenda’ of Pittsburgh, Pennsylvania. I show that this agenda is tethered to postindustrial ideologies of urban development, which see building and promoting ‘diversity’ as an economic exigency. As such, locally resettled refugees are incentivized to participate in a ‘symbolic economy’ valuing images of diversity, cosmopolitanism and immigrant contribution. Refugees gain access to resources, recognition and decision makers through participation in this symbolic economy, a process constituting a previously unexamined form of incorporation. I advance the concept of the ‘welcomed refugee’ to organize thinking about this process and call for critical attention to the forms of incorporation fostered in pro‐immigrant, cosmopolitan, substate settings.     

‘Gentrification Without Displacement' and the Consequent Loss of Place: The Effects of Class Transition on Low‐income Residents of Secure Housing in Gentrifying Areas

The increasingly disputed concept of gentrification‐induced displacement is combining with the argument that the poor benefit from social mix to produce a theoretical case for ‘positive gentrification'. The notion that new middle‐class residents not only attract more investment but bring opportunities for ‘upward social mobility' to low‐income people who manage to stay in gentrifying areas has become policy orthodoxy. While there are scholarly challenges to the extent of these benefits, the disadvantages of imposed social mix on low‐income communities even where they are not physically displaced remain under‐researched. This article helps to fill this gap by reporting on research into the experience of long‐term low‐income residents of gentrifying neighbourhoods who managed to stay put. The research explores notions of social mix, place and displacement among residents of secure community housing in Melbourne, Australia (the equivalent of small‐scale social housing in Europe and North America) with the object of establishing whether the absence of physical displacement is sufficient to ameliorate gentrification's negative impacts. The findings demonstrate that transformations in shops and meeting places, and in the nature of local social structure and government interventions, cause a sense of loss of place even without physical displacement.     

A resilient social economy? Insights from the community food sector in the UK

At a time of global economic and environmental crisis, academic and policy debates are re-emphasizing the potential of the social economy in providing an alternative development model that reconnects communities with their resource-base and enhances their ‘resilience’. The goal of this paper is to explore this potential through a focus on the practices and values of those who are concretely involved in the social economy. Based on data collected on five community food enterprises in Oxfordshire, UK, the analysis focuses on the perceptions of social entrepreneurs in relation to the ‘alternativeness’ of the social economy, its potential for expansion and its resilience. The research highlights the capacity of social entrepreneurs to empower local communities through a process of collective mobilization of local resources. Theoretically, this study generates new insights into the nature and meanings of resilience as a process of creation of more self-reliant communities of people, places, tools, skills and knowledge. From a policy and practice perspective, the paper raises the need for regional development strategies that capture the gains of these isolated initiatives, particularly in relation to their innovative capacity to create a shared vision that fosters synergies between local ecological, social and economic resources.     

Playing with the Rules of the Game: Social Innovation for Urban Transformation

Innovation is perhaps the buzzword in local economic development policy. Associated narrowly with neoliberal ideas, conventional notions of innovation—like its capitalocentric counterparts, enterprise and entrepreneurialism—may promise higher productivity, global competitiveness and technological progress but do not fundamentally change the ‘rules of the game’. In contrast, an emerging field reimagines social innovation as disruptive change in social relations and institutional configurations. This article explores the conceptual and political differences within this pre‐paradigmatic field, and argues for a more transformative understanding of social innovation. Building on the work of David Graeber, I mobilize the novel constructs of ‘play’ and ‘games’ to advance our understanding of the contradictory process of institutionalizing social innovation for urban transformation. This is illustrated through a case study of Liverpool, where diverse approaches to innovation are employed in attempts to resolve longstanding socio‐economic problems. Dominant market‐ and state‐led economic development policies—likened to a ‘regeneration game’—are contrasted with more experimental, creative, democratic and potentially more effective forms of social innovation, seeking urban change through playing with the rules of the game. I conclude by considering how the play–game dialectic illuminates and reframes the way transformative social innovation might be cultivated by urban policy, the contradictions this entails, and possible ways forward.     

How does(n't) Urban Shrinkage get onto the Agenda? Experiences from Leipzig,Liverpool, Genoa and Bytom

This article discusses the question of how urban shrinkage gets onto the agenda of public‐policy agencies. It is based on a comparison of the agenda‐setting histories of four European cities, Liverpool (UK), Leipzig (Germany), Genoa (Italy) and Bytom (Poland), which have all experienced severe population losses but show very different histories with respect to how local governments reacted to them. We use the political‐science concepts of ‘systemic vs. institutional agendas’ and ‘policy windows’ as a conceptual frame to compare these experiences. The article demonstrates that shrinkage is hardly ever responded to in a comprehensive manner but rather that policies are only implemented in a piecemeal way in selected fields. Moreover, it is argued that variations in institutional contexts and political dynamics lead to considerable differences with regard to the chances of making shrinkage a matter of public intervention. Against this background, the article takes issue with the idea that urban shrinkage only needs to be ‘accepted’ by policymakers who would need to overcome their growth‐oriented cultural perceptions, as has been suggested in a number of recent writings, and calls for a more differentiated, context‐sensitive view.     

Creative Cities,Graffiti and Culture-Led Development in South Africa: Dlala Indima (‘Play Your Part’)

Creative cities and culture-led development discourses have come under increasing scrutiny as elite-centric economic development agendas tend to trump ‘civic creativity’ ideals as imagined by Charles Landry. In South Africa, culture-led development and cultural policy tends to primarily mimic that of the global North, largely focusing on culture as a catalyst for economic and property development. Public art commissioning processes tend to focus on decorative projects as part of urban upgrading, which are often associated with ensuing gentrification and displacement of the urban poor. In contrast to focusing on these kinds of regeneration strategies, this article investigates Dlala Indima, a hip-hop-led graffiti project in a rural township in the Eastern Cape of South Africa. This article situates graffiti as a critical social and spatial practice to argue that this case challenges normative cultural planning paradigms. Dlala Indima's work is an alternative approach to cultural development by and for young people who are usually marginalized by the mainstream practice of culture-led economic development. The project challenges dominant creative cities and culture-led development discourses in three ways: first, it challenges the normative processes of regeneration; secondly, it grounds participatory practice; and finally, it shifts participation from ‘tyranny to transformation’ through the ubuntu of hip-hop, the notion of ubuntu being based on the communitarian notion of ‘ubuntu, ngubuntu ngabantu’—‘I am because you are’.     

Social inclusion,new regionalism and associational governance: the Queensland experience

In recent years there has been a resurgence of decentralized social governance concerned with the spatial dimensions of disadvantage. This article examines aspects of this resurgence in the Australian state of Queensland where, after the hasty birth of ‘place management’ in response to the rise of ‘Hansonism’, a plethora of ‘joined‐up’ policy initiatives were undertaken in relation to the regional dimensions of poverty. We propose that these trends reflect in part new ways of thinking about the spatial aspects of disadvantage which have emerged in recent years and which have the potential to take regional policy beyond the narrow confines imposed by neoliberal economic orthodoxy. These new ways of thinking have arisen in social policy through the reframing of disadvantage in terms of social exclusion and in regional economic policy through the influence of the so‐called ‘new regionalism’. The article shows how together these bodies of theory point us towards a new model of ‘associational governance’. The article reviews recent Queensland experience and indicates those features of ‘associational governance’ which have become characteristic of locality‐based social policy ideas in Queensland. ‘Joined‐up’ and regional policy aspirations of the Queensland State government have shown the influence of these new approaches. The political and policy sustainability of these trends, however, is uncertain. The lingering shadow of managerialism and neoliberal policy frameworks remains a significant barrier to the innovation and viability of these approaches. More directly, the inherent limits of the ‘local’ or ‘regional’ initiatives in the face of broader national and global factors will significantly constrain the capacity of associational governance systems to deliver positive democratic, social and economic outcomes. The article examines recent Queensland policy reforms in light of this complex set of factors and concludes by offering directions for future research and policy development. Ces dernières années ont vu réapparaître une gouvernance sociale décentralisée soucieuse des dimensions spatiales des cas défavorisés. Des aspects de cette ré‐émergence sont étudiés dans l'état australien du Queensland où, après la démarche précipitée vers un ‘management de lieu’ en réaction à la montée de ‘l'hansonisme’, une multitude d'initiatives politiques ‘combinées’ ont été entreprises à l'égard des dimensions régionales de la pauvreté. Ces tendances reflètent en partie de nouveaux modes de pensée sur les aspects spatiaux des cas défavorisés. Apparus depuis peu, ces courants sont susceptibles de sortir la politique régionale des limites étroites qu'impose l'orthodoxie économique néolibérale. De plus, ils ont surgi dans la politique des régions grâce au recadrage de la pauvreté en termes d'exclusion sociale, et dans la politique économique régionale grâce à l'influence du dit ‘nouveau régionalisme’. L'article montre comment ces deux corpus théoriques orientent vers un modèle nouveau de ‘gouvernance associative’. Partant de l'expérience récente du Queensland, l'étude identifie les traits de gouvernance associative qui y sont devenus caractéristiques des réflexions de politique sociale de portée locale. Ces approches ont été traduites dans les ambitions de politique ‘combinée’ et régionale du gouvernement du Queensland. Pourtant, leur viabilité au plan politique et stratégique est incertaine. L'ombre persistante du néolibéralisme et du managérialisme continue de faire obstacle à l'innovation et à la pérennité de ces tendances. Plus directement, les limites inhérentes aux initiatives de type local ou régional comparées aux influences nationales et mondiales vont énormément restreindre la capacité des systèmes de gouvernance associative à produire des résultats démocratiques, sociaux et économiques positifs. Après un examen des récentes réformes politiques au Queensland à la lumière de cet ensemble complexe de facteurs, la conclusion propose des orientations de recherches et des lignes politiques à développer.     

Fast Parallels? Contesting Mobile Policy Technologies

This article extends recent examinations of incomplete or disrupted policy mobility by examining the politically volatile case of policies to manage the regional impacts of decarbonization in Australia. The article's extended case study shows how political interests differently incorporated figments of circulating policy into longstanding debates and how more‐than‐local political networks defeated an antipolitical, technocratic exercise in ‘new regional’ governance. ‘Follow the policy’ methods could not have revealed the complexities of this case. The article concludes that mobilities approaches need to be more attentive to institutional arrangements, to the contested politics of policy formation and to the ambiguities of perceived policy likenesses. This case highlights the importance of considering how antipolitical institutional architectures facilitating policy mobility relate to established political power networks.     

Historicizing Planning,Problematizing Participation

In this article, I offer speculations which share the intentions of this symposium to bring to light seldom acknowledged configurations of knowledges, and to indicate different ways of thinking historically about urban problems and planning policies. I suggest that a genealogical or critical historical sensibility has much to contribute to these projects by tracing how policies and programmes come into being in response to specific conditions and within specific sets of presuppositions, and are rarely the products of unified histories or singular rationalities. But these policies are also configured in discursive terrains that already shape the form of problems and their possible solutions. That is, before policies or concepts can ‘travel’, they have to come into being under certain ‘conditions of possibility’. The main focus of this article is to suggest that posing a policy, programme or set of practices as a ‘problematization’ as a consequence of certain conditions of possibility can productively indicate different avenues of enquiry that trace the disparate ‘pre‐travel’ emergences of what may (or may not) then become ‘travelling’ policies. I indicate some questions and possible research directions arising from taking participation in planning as a particular form of problematization and calling attention to the taken‐for‐granted nature of ‘participation’ as it is theorized and practised in the fields of urban planning and participatory development.     

Respectability,Roughness and ‘Race’: Neighbourhood Place Images and the Making of Working‐Class Social Distinctions in London

Housing has come to play an important role in demarcating the contours of social polarization in inner London, notably via the widening socio‐spatial divide between an impoverished working class located in council housing estates and affluent home‐owning gentrifiers. In mass media and policy discourses, the former are routinely represented as an unruly urban ‘underclass’, a representation that homogenizes council tenants and marginalizes their voices. This article aims to move beyond a narrow underclass perspective by providing an in‐depth analysis of neighbourhood place images and social identity based on interviews with white working‐class council tenants in the inner London Borough of Camden. Drawing on debates around social distinction and place, the article illustrates a complex set of neighbourhood images rooted in narratives of urban decline as well as notions of belonging and knowing people. The article examines these place images in relation to the longstanding status distinction between respectability and roughness, as well as ‘race’. In conclusion, the defensive and exclusionary elements of neighbourhood images are related to processes of social deprivation and insecurity that have affected working‐class council tenants in Camden.     

Tackling Social Exclusion in the European Union? The Limits to the New Orthodoxy of Local Partnership

This article is based on recent transnational research on partnership‐based initiatives to promote local development and regeneration and combat social exclusion in the EU. The increasing reliance on partnership as the basis for local policy initiatives is first situated in the context of contemporary debates about social exclusion. The main part of the article then draws on the literatures on local governance and urban regime theory to examine three issues critical to the impact of the ‘new orthodoxy’ of local partnership: the capacity of partnerships as interorganizational forms of local governance; their inclusiveness; and the extent of outcomes which can be attributed to partnership as a distinctive mode of local governance. On all three issues, the evidence points to the limited claims that can be made for most local partnerships as ‘inclusion coalitions’ capable of effectively tackling social exclusion, and suggests that structural features of the currently dominant version of partnership entrench a model of elite rather than inclusive governance. Local partnership is associated with weak rather than strong discourses of social exclusion and inclusion, and its significance lies as much as anything in the way in which the practice of partnership tends to foreclose the sphere of debate and action, excluding more radical options. Cet article se fonde sur une récente étude transnationale concernant l'UE et portant sur les initiatives de partenariat visant à promouvoir le développement et la régénération sur le plan local, tout en combattant l'exclusion sociale. Le recours croissant au partenariat comme base des initiatives de politique locale est d'abord resitué dans le cadre des débats contemporains sur l'exclusion sociale. L'article, qui s'inspire des travaux sur la gouvernance locale et les régimes urbains, examine trois points essentiels pour l'influence de la ‘nouvelle orthodoxie’ du partenariat local: la capacité des partenariats en tant que formes de gouvernance locale inter‐organismes, leur nature inclusive, ainsi que la part des résultats qui leur revient au titre de mode distincif de gouvernance locale. Sur ces trois aspects, les faits soulignent la portée limitée que peuvent revendiquer la plupart des partenariats locaux comme ‘coalitions d'inclusion’ capables de traiter efficacement l'exclusion sociale; les résultats suggèrent en outre que les caractéristiques structurelles du partenariat, dans sa version dominante actuelle, enracinent un modèle élitiste plutôt qu'une gouvernance inclusive. Le partenariat local est associéà des propos sur l'exclusion et l'inclusion sociale plus complaisants que percutants, et sa place tient tout autant à la manière dont son exercice tend à figer la sphère de débats et d'actions, excluant toute option plus radicale.     

‘Policies in Motion’, Urban Management and State Restructuring: The Trans‐Local Expansion of Business Improvement Districts

This article examines the ways in which business improvement districts are being introduced into UK cities. In advancing this analysis, the focus here is on the means through which one or two Manhattan business improvement districts have been constructed as ‘models’ of urban management, taken out of their particular local/regional and national contexts and introduced into a diverse set of local political economic contexts in UK cities and towns. Examining the way business improvement districts have become a policy in motion, the article sketches out the emergence of entrepreneurial urban governance arrangements in the UK as part of the state's changing spatiality in the industrialized economies of Western Europe and North America. I argue that these changes make UK cities and towns increasingly receptive to the business improvement district model of downtown management. Seeking to move beyond the sometimes rather one‐sided representations of policies that find themselves on the move, the article seeks to connect the ‘exporting’ and ‘importing’ zones of policy transfer, arguing for an open and permeable conceptualization of these places. It draws on work in Manhattan, New York to unpack the nature of the political–economic relations that business improvement districts were part of, before moving on to examine the dynamics of policy transfer and the early days of the introduction of this downtown ‘model’ into UK cities.     

Privatization,Financialization and State Restructuring in Eastern Germany: The case of Am südpark

Using a mix of survey data, results from a study on local planning politics and fieldwork, this article discusses the interplay of planning and welfare policies with global financial markets in the ‘making’ of social segregation in Halle‐Neustadt, a borough in the German city of Halle (Saale). Here, different developments come together. First, Halle‐Neustadt has experienced two waves of privatization, leading to a complete change of ownership structures, marked by the rise of financial investors. Second, welfare cuts have put increasing pressure on welfare recipients to live in the cheapest housing available. This has led to the emergence of a ‘Hartz IV business model’ based on low, but state‐subsidized, rents. Third, new planning policies have led to a massive drop in house prices, thus facilitating the use of ‘leverage’ strategies for financial investors. We expand on an already developed debate, providing new insights about relations between planning, state restructuring and financialization in a German context. We demonstrate that a broad array of changes in national regulatory settings, policy change in different sectors and local particularities can all be crucial in enabling financialization. We conclude that research should place greater emphasis on the state in providing explanations and take differences in context more seriously.     

Talking Business: An Actor‐Centred Analysis of Business Agendas for Local Economic Development

Much of the recent literature about local governance of Britain’s cities has examined the power of a newly evolving ‘business elite’. However, in trying to understand changing governance forms, these analyses have generally lacked sensitivity to the role of actors (businesspeople) and their representative organizations. Analytical categories drawn from social movement theory (SMT) are introduced to develop a more actor‐centred approach to the role of business interests in urban management. While not attempting to claim that business represents a social movement within Britain’s cities, it does illuminate how effectively or otherwise businesspeople develop an identity based around their representative organizations and specific business agendas, define non‐business actors as opponents, and deploy and implement the agendas they create. We then use these SMT categories to examine the creation of business agendas in three English towns – Barnsley, Mansfield and Accrington.     

Low‐Carbon Gentrification: When Climate Change Encounters Residential Displacement

This article focuses on the emergence of ‘low‐carbon’ gentrification as a distinct urban phenomenon, a process that we see as the outcome of efforts to change the social and spatial composition of urban districts under the pretext of responding to climate change and energy efficiency imperatives. The article develops a conceptual framework for scrutinizing low‐carbon gentrification, predicated upon insights from literatures on ecological gentrification and displacement. It documents the existence of an ‘eco‐social paradox’ associated with new patterns of socio‐spatial segregation and energy efficiency retrofits. We interrogate the discursive and policy frameworks, socio‐spatial implications and political contestations of low‐carbon gentrification. Evidence is drawn from case study research in an inner‐city district of the Polish city of Gdańsk, where such processes have been unfolding since 2006 due to the implementation of a targeted urban regeneration programme. This investigation is positioned within a wider analysis of secondary written sources about similar developments in other geographical contexts across Europe and North America, where anecdotal evidence suggests that low‐carbon gentrification may be widespread and common.     

Remaking Equality: Community Governance and the Politics of Exclusion in Bogota's Public Spaces

Bogota's public space policy is often credited with promoting inclusionary principles. In this article, I explore critically the content of Bogota's articulation of equality in public space policy. In so doing, I present a critical view of the work Bogota's insistence on equality does to mediate class relations in the city, relying on deeply held conceptions of both social extremes. This results in the construction of a version of social harmony in public space that at once depoliticizes the claims to public space of subjects such as street vendors and the homeless and claims a new role for the middle class in the city. The analysis focuses on two examples of community governance schemes, documenting the logics and methods used by communities to implement official visions of equality and justify the exclusion of street vendors and homeless people from the area. By looking at the articulation of these exclusions in local class politics through seemingly inclusionary rhetoric, the article accounts for ‘post‐revanchist’ turns in contemporary urban policy, while anchoring its production in local processes of community governance.     

Resisting the 'Long‐Arm' of the State? Spheres of Capture and Opportunities for Autonomy in Community Governance

Efforts to promote community empowerment within regeneration management have been persistently critiqued. Particular concern regards the potential capture of civic organizations into the sphere of influence of more powerful governance stakeholders, leaving communities marginalized and frustrated. Although such ‘capture’ is a discernible threat, this article presents a more nuanced perspective demonstrating the scope for community‐based organizations to dissent from seemingly inexorable regimes of power. The article details a series of tensions that emerged across the evolution of a community‐led regeneration partnership. It then outlines how civil society organizations challenge ‘partnership orthodoxies’, seeking autonomy albeit nested within—and relative to—formal bureaucratic and administrative regimes. Community partners can therefore assume a hybridity of capture and autonomy—or a mutuality—that is rarely acknowledged by accounts that critique regeneration governance.     

Cracks in the Creative City: The Contradictions of Community Arts Practice

The recent flurry of research about arts‐led regeneration initiatives illuminates how contemporary arts festivals can become complicit in the production of urban inequality. But researchers rarely engage with detailed empirical examples that shed light on the contradictory role that artists sometimes play within these spectacularized events. Similar research in performance studies connects the political limits and potential of social practice arts — interventions that encourage artists and non‐artists to co‐produce work — as civic boosters strive to stage cities in order to attract investment. In this article, I explore the case study of Streetscape: Living Space at Regent Park, a participatory artistic intervention programmed in a public housing neighbourhood that is undergoing redevelopment in Toronto, Canada. Streetscape was part of the Luminato festival, an elite booster coalition‐led festival of ‘creativity’. I refer to these arts interventions to demonstrate how artists engaging in social practice arts can become complicit in naturalizing colonial gentrification processes at multiple scales. But I also reveal how artists can leverage heterogeneous arts‐led regeneration strategies to make space for ‘radical social praxis’ (Kwon, 2004), interventions that challenge hegemonic regimes. I conclude by interrogating the effectiveness of place‐based efforts in unsettling the ‘creative city’.