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Urbanization and economic growth: The arguments and evidence for Africa
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Article  in  Environment and Urbanization · October 2013

DOI: 10.1177/0956247813490908

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 Urbanization and economic growth:
the arguments and evidence for
Africa and Asia

Ivan Turok and Gordon McGranahan

Ivan Turok is Deputy ABSTRACT  The relationship between urbanization and development is a vital
Executive Director at policy concern, especially in Africa and Asia. This paper reviews the arguments
the Human Sciences
Research Council (HSRC)
and evidence for whether rapid urban population growth can help to raise living
in South Africa and also standards. The main finding is that the development effects of urbanization and the
Honorary Professor at the magnitude of agglomeration economies are very variable. There is no simple linear
Universities of Glasgow and relationship between urbanization and economic growth, or between city size and
Cape Town. productivity. The potential of urbanization to promote growth is likely to depend
on how conducive the infrastructure and institutional settings are. Removing
Address: HSRC, Private
Bag X9182, Cape Town barriers to rural–urban mobility may enable economic growth, but the benefits will
8000, South Africa; e-mail: be much larger with supportive policies, markets and infrastructure investments.
[email protected]. Cities should use realistic population projections as the basis for investing in
public infrastructure and implementing supportive land policies. Governments
Gordon McGranahan is should seek out ways of enabling forms of urbanization that contribute to growth,
Principal Researcher in
poverty reduction and environmental sustainability, rather than encouraging (or
the Human Settlements
Group of the International discouraging) urbanization per se.
Institute for Environment
and Development (IIED), KEYWORDS  Africa / agglomeration economies / Asia / economic growth / rural−
London.
urban migration / urban policy / urbanization
Address: e-mail: gordon.
[email protected].
I. INTRODUCTION

The growing concentration of the world’s population in major cities and

towns in low- and middle-income countries means that the relationship
between urbanization and development has become a major policy
1. Our use of the term concern.(1) Almost coincidentally, the contribution of large cities to the
“urbanization” generally follows prosperity of advanced economies has attracted the attention of leading
the formal demographic
definition, and refers to North American and European economists, illustrated by the Nobel
the increasing share of the Prize awarded to Paul Krugman in 2008. Of course, the biggest practical
population (and economic challenges lie in Africa and Asia, where a vital question is whether rapid
activity) located in urban areas.
This is distinct from urban
urban population growth can help to raise living standards and reduce
population growth, which poverty without degrading the ecosystems on which life depends.
reflects natural growth (births This paper focuses on the connection between urbanization and
minus deaths) as well as economic growth, but also refers to the implications for poverty and the
urbanization. It is also distinct
from the physical expansion environment.
of urban areas, which can Over the last decade, many influential global development
reflect declining population organizations have shifted their perspective on this issue by advocating
density as well as urbanization
and natural growth. Globally,
the view that urbanization supports growth and development and should
the contribution of each of be encouraged.(2) For example:

Environment & Urbanization Copyright © 2013 International Institute for Environment and Development (IIED). 465
Vol 25(2): 465–482. DOI: 10.1177/0956247813490908  www.sagepublications.com
E N V I R O N M E N T & U R B A N I Z AT I O N Vol 25 No 2 October 2013

“No country has grown to middle income without industrializing these three factors to the
expansion of urban land
and urbanizing. None has grown to high income without vibrant
areas is similar in magnitude,
cities. The rush to cities in developing countries seems chaotic, but it judging from UN statistics
is necessary.”(3) on urbanization and urban
growth (see United Nations
Similarly: Population Division (2012),
World Urbanization Prospects:
“The city is one of the highest pinnacles of human creation … The 2011 Revision, POP/DB/
Through agglomeration, cities have the power to innovate, generate WUP/Rev.2007, United Nations
Department of Economic and
wealth, enhance quality of life and accommodate more people within Social Affairs, New York) and
a smaller footprint at lower per capita resource use and emissions recent research on declining
than any other settlement pattern.”(4) urban density (see Angel,
Shlomo, Jason Parent, Daniel L
Recognition that urbanization has a role to play in economic and social Civco and David Potere (2010),
“A planet of cities: urban
progress is important, bearing in mind the general neglect of cities in the land cover estimates and
national and international discourse on development in recent decades.(5) projections for all countries,
However, to avoid the pendulum of fashionable thinking simply swinging 2000−2050”, Working Paper,
back towards rural development in a few years’ time, it is vital that the Lincoln Institute of Land Policy,
Cambridge, MA, 103 pages.
supporting rationale and evidence base are robust. The current arguments The degree to which the
put forward by these development organizations for urbanization being population is concentrated in
a driver of development, or for cities functioning as “engines of growth”, a few large cities or spread
across a range of cities is a
are broad-brush and the supporting evidence provided is rather thin. The separate but related issue that
urbanization–growth nexus is often portrayed as automatic and inevitable, we also discuss in the paper.
like some sort of universal law governing an immutable historical 2. OECD (2006), Competitive
process. Insufficient attention is paid to the dynamics of urbanization Cities in a Global Economy,
and the nature of growth, including the different ways in which cities OECD, Paris, 446 pages; also
UN−Habitat (2008), The State
can support growth and the varied forms or composition of that growth. of African Cities 2008: A
The conditions necessary for this to occur are also neglected, along with Framework for Addressing
the consequences of growth for poor communities and the depletion of Urban Challenges in Africa,
United Nations Human
natural resources. Urbanization is often conflated with agglomeration, Settlements Programme,
but they are not synonymous, especially if the fastest-growing areas are Nairobi, 206 pages; UN−
small cities and towns rather than major cities. Habitat (2010), State of the
World’s Cities: Bridging the
China is widely held up as an example of how urbanization can
Urban Divide, Earthscan/
fuel industrialization and transform living standards.(6) China passed James and James, London,
the historic milestone of 50 per cent of its population living in cities in 224 pages; UNFPA (2007),
2011, up from only 20 per cent in 1980. The unprecedented speed of State of the World Population
2007: Unleashing the
urbanization has reflected the strength of jobs growth in cities. Average Potential of Urban Growth,
household incomes in Chinese cities are now almost three times higher United Nations Population
than in rural areas, largely because of higher productivity. The state’s Fund, New York, 108 pages;
and World Bank (2009),
commitment to invest heavily in urban infrastructure has helped to limit World Development Report
the socially disruptive effects of this massive population movement. It 2009: Reshaping Economic
differs from India and many other developing countries, where urban Geography, The World Bank,
congestion, water shortages, squalid living conditions and public health Washington DC, 383 pages.

problems are rife. In the early 2000s, China spent 12.6 per cent of GDP 3. See reference 2, World
Bank (2009), page 24.
on infrastructure – more than twice that of India.(7) It was stated recently
4. Robinson, Blake and
that: “For every pound Indian authorities invest in urban infrastructure, their Mark Swilling (2012),
Chinese counterparts spend seven.”(8) Urban Patterns for a Green
China’s experience seems to bear out the broader argument Economy: Optimizing
Infrastructure, United
developed in this paper that it is not urbanization per se that stimulates Nations Human Settlements
and sustains growth, but rather the form that urbanization takes and Programme (UN−Habitat),
whether it provides an efficient enabling environment. This includes Nairobi, page iii.
the manner in which the growing population and economic activity are 5. Beall, Jo and Sean
accommodated within cities and the distribution of this growth across Fox (2009), Cities and
Development, Routledge,
cities of different sizes and across the wider national territory. Public Abingdon, 268 pages.

466
 U R B A N I Z AT I O N A N D E C O N O M I C G R O W T H : A F R I C A A N D A S I A
6. Ravallion, Martin (2009), investment in infrastructure and the built environment can play a crucial
“Are there lessons for Africa
role in shaping these patterns, and therefore in influencing whether or
from China’s success against
poverty?”, World Development not urbanization is functional for development. This will also influence
Vol 37, No 2, pages 303−313; the impact of urbanization on poverty and the environment.
also see reference 2, World
Bank (2009).
7. Bardhan, Pranab K (2010),
Awakening Giants, Feet of Clay:
II. THE THEORY OF AGGLOMERATION ECONOMICS
Assessing the Economic Rise
of China and India, Princeton Two concepts underpin our understanding of the advantages of
University Press, Princeton, NJ, economic concentration – the division of labour and economies of scale. The
172 pages.
former explains the gains for productivity, and therefore growth, from
8. The Observer (2012), “How
specialization. Firms organize themselves around particular products
the rise of the megacity is
changing the way we live”, 22 or tasks, which yields efficiencies and enhanced skills. Specialization
January, accessible at www. also applies at the city level, meaning there are benefits of focusing on
guardian.co.uk. a function, or group of functions, for which places inherit or build a
distinct advantage. Specialization becomes more important as external
trade grows and competition intensifies.
Economies of scale have two aspects. Internal economies of scale are
internal to the firm and relate to the lower unit costs or efficiencies
that result from larger-scale production. External economies of scale (or
“agglomeration economies”) are the benefits firms obtain from being close
to other firms in order to reduce transaction costs (such as transport
and communication) and to gain from network effects, such as shared
information. The bigger the network, the more knowledge and intelligence
are available to learn from. Agglomeration economies include proximity
to a large labour pool, suppliers, customers and competitors within the
same industry (localization economies), and firms in other industries
(urbanization economies).
These advantages can be summed up as three broad functions:
9. Duranton, Gilles and Diego matching, sharing and learning.(9) First, cities help firms to match their
Puga (2004), “Microfoundations unique requirements for labour, material inputs and premises better than
of urban agglomeration
economies”, in J Vernon towns, because markets are larger and there is more choice available. A
Henderson and Jacques bigger pool of providers also lowers costs and improves variety through
François Thisse (editors), competition and specialization. In volatile market conditions there is a
Handbook of Regional and
Urban Economics: Volume 4,
premium on being adaptable, and companies tend to be leaner, more
Cities and Geography, Elsevier focused on core competences, and more reliant on buying-in goods and
North Holland, Amsterdam, services than in-house production.(10) Agglomerations assist firms to “mix
pages 2063−2117; also Storper, and match” their resources more easily.
Michael (2010), “Agglomeration,
trade and spatial development: Second, cities afford firms access to a wider range of shared services
bringing dynamics back in”, and infrastructure because of the scale of activity. Cities offer better
Journal of Regional Science Vol external connectivity to customers and suppliers through more frequent
50, No 1, pages 313−342.
transport links to more destinations and more efficient logistics systems
10. Buck, Nick, Ian Gordon,
Alan Harding and Ivan Turok
to handle imports and exports. They tend to have higher-capacity
(editors) (2005), Changing telecommunications systems for electronic connectivity and marketing.
Cities: Re-thinking Urban There is more extensive professional expertise, financial know-how and
Competitiveness, Cohesion specialized research available to help companies stay up-to-date with
and Governance, Palgrave
Macmillan, London, 317 pages; changes in technology.
also Scott, Allen John (2006), Third, firms gain from the superior flow of information in cities,
Geography and Economy: which promotes more learning and innovation, and results in more
Three Lectures, Clarendon
Press, Oxford, 192 pages.
valuable products and processes.(11) Proximity allows face-to-face
11. Hall, Peter Mar (1998),
communication and sharing of complex ideas between companies and
Cities in Civilization: Culture, support organizations.(12) It enables people and firms to compare, compete
Innovation and Urban Order, and collaborate, which can establish a self-reinforcing virtuous circle

467
E N V I R O N M E N T & U R B A N I Z AT I O N Vol 25 No 2 October 2013

that spurs creativity, attracts mobile capital and talent, and generates Weidenfeld and Nicolson,
London, 1169 pages; also
growth from within. These “dynamic” advantages become increasingly Jacobs, Jane (1969), The
significant over time because they are cumulative, unlike the one-off or Economy of Cities, Random
“static” advantages of lower production and transaction costs. House, New York, 288 pages;
Economies of scale also apply to public infrastructure. It is more Jacobs, Jane (1984), Cities
and the Wealth of Nations:
efficient to provide hospitals, sewage treatment facilities and universities Principles of Economic Life,
in large cities than in dispersed settlements, where densities are low and Random House, New York, 257
distances are large.(13) Similarly, urban infrastructure projects generate pages; and Storper, Michael
and Anthony J Venables (2004),
greater positive externalities in cities than in towns because they increase “Buzz: face-to-face contact and
the productive capacity of households (through improved health and the urban economy”, Journal of
life expectancy) and the effective labour supply, which enable higher Economic Geography Vol 4, No
4, pages 351−370.
economic growth. Kalarickal(14) provides examples of how public
investment in low-cost housing, sanitation, drinking water, electricity 12. Cooke, Philip and
Kevin Morgan (1998), The
and access roads in informal settlements in Africa helped to reduce public Associational Economy: Firms,
health problems and mortality associated with overcrowding. He argues Regions and Innovation, Oxford
that governments must look beyond individual projects when assessing University Press, Oxford, 247
pages; also see reference
their costs and benefits because of the disproportionate gains associated 10, Scott (2006); and Storper,
with urban investments.(15) Michael and Michael Manville
The existence of agglomeration economies does not mean that (2006), “Behaviour, preferences
and cities: urban theory and
urbanization will necessarily cause economic output to increase. The
urban resurgence”, Urban
benefits of concentration can be offset by rising congestion, overcrowding, Studies Vol 43, No 8, pages
overloaded infrastructure, pressure on ecosystems (such as water courses 1247−1274.
and air quality), higher costs of living and higher labour and property costs 13. Martine, George,
in cities. These negative externalities tend to increase as cities expand, Gordon McGranahan, Mark
Montgomery and Rogelio
especially if urban development is haphazard and there is insufficient Fernandes-Castilla (editors)
public investment to maintain and expand essential infrastructure. (2008), The New Global
Dysfunctional systems, gridlock, power cuts and insecure water supplies Frontier: Urbanization, Poverty
and Environment in the 21st
increase business costs, reduce productivity and deter private investment.
Century, Earthscan, London,
The balance between the agglomeration economies and diseconomies 386 pages; also see reference
may have an important influence on whether city economies continue to 2, UNFPA (2007).
grow, stagnate or begin to decline. 14. Kalarickal, Jerry (2007),
The advantages of agglomeration also vary across sectors of the “Urban investments and
rates of return: assessing
economy, with implications for the relationship between urbanization MCC’s approach to project
and growth. Economic success generally involves a progressive shift out of evaluation”, International
agriculture, even as agricultural productivity grows, and the diversion of Housing Coalition, Washington,
28 pages.
resources towards industrial and service sectors. Agriculture is more land
intensive and gains from being dispersed across the countryside, while 15. See also Bettencourt, Luis
and Geoffrey West (2010), “A
industries and services benefit from concentration. This helps to explain unified theory of urban living”,
why urbanization is quite closely related to the share of a country’s GDP in Nature Vol 467, No 7318, pages
industry and services.(16) It does not in itself imply that faster urbanization 912–913.
will lead to accelerated economic growth. Rather, it suggests a sort of 16. Satterthwaite, David
(2007), “The transition to a
equilibrium or mutually dependent relationship, wherein urbanization predominantly urban world
helps to sustain growth but could be counter-productive if it outpaces and its underpinnings”, Human
economic restructuring and makes it difficult to absorb the surplus urban Settlements Working Paper
labour force. Series, Urban Change 4, IIED,
London, pages 28–31.
Just as important from a policy perspective, the benefits of
agglomeration depend on specific investments being made by local and
national governments to improve how cities function. Governments have
a big influence on which cities receive favourable treatment.(17) There is 17. Henderson, J Vernon (2010),
little point in building new roads if they worsen congestion elsewhere “Cities and development”,
Journal of Regional Science Vol
in the city, or opening sewage treatment works or power stations if 50, No 1, pages 515–540.
they discharge effluent and pollution in ways that discourage further
investment in the city. The gains of agglomeration also depend on the

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mobility of enterprises and workers to productive locations to facilitate

matching, sharing and learning. The agglomeration literature has tended
to assume that land and housing markets function smoothly and local
authorities are responsive to market failures, so that people and firms can
easily relocate and suitable land and infrastructure will be provided to
accommodate them. This is far from straightforward in many developed
as well as developing countries, because all sorts of other factors are also
at work.
Finally, urbanization implies a decline in the share of rural dwellers,
and not just more urban dwellers. This may be caused by a rise in rural
productivity, or it may require such a rise. Where rural overpopulation
is a problem, urbanization can assist. Urbanization can also reduce
the economic distance between rural producers and their markets by
18. Dorosh, Paul and improving the connecting infrastructure.(18) Not all forms of urbanization
James Thurlow (2012a), will have the same impacts on rural productivity and incomes. Much will
“Agglomeration, growth and depend on how many cities are expanding, whether they are spatially
regional equity: an analysis of
agriculture- versus urban-led concentrated or dispersed across different regions, what activities they
development in Uganda”, undertake and what sort of infrastructure they invest in.
Journal of African Economies
Vol 21, No 1, pages 94–123.

III. MEASURING THE RELATIONSHIP BETWEEN URBANIZATION

AND GROWTH

It is difficult to disentangle and measure the effects of agglomeration

because of their complexity and feedback effects. The benefits of
economic concentration are partly absorbed by higher land and labour
costs and offset by increased congestion. Consequently, the effects
may not be readily apparent in aggregate economic indicators such as
output, employment or average earnings. These variables are influenced
by many other factors as well, such as the city’s industrial structure and
occupational composition. The effects may not be apparent at the scale of
city administrative units, for which spatial data is conventionally available,
because of their openness and leakage of resources across boundaries.
Government financial transfers between localities can also mask the
underlying economic processes, particularly when they are specifically
designed to redistribute from stronger to weaker local economies. There
are additional complications of timing in assessing the dynamic effects of
agglomeration.
From the perspective of economic growth, the key outcome of
agglomeration that should be measured is productivity. This is the single
most important determinant of growth in economic output and income.
It reflects the market value of local goods and services and the efficiency
with which they are produced. Unfortunately, statistics on productivity
tend to be unreliable at the local level. All sorts of other devices and
indicators have been used instead to analyze agglomeration advantages.
One of the simplest is to compare the urbanization levels of individual
countries with some measure of national economic output, average
income or social development, in order to test for a statistical association
between urbanization and development. Many results suggest that there
is a broad empirical regularity – highly urbanized countries tend to be
19. See reference 2, UN–Habitat more prosperous.(19) Henderson(20) found a strong correlation (R2 = 0.57)
(2010). between the proportion urbanized and Gross National Income per capita
20. See reference 17. in 2004 for countries around the world. He argued that the correlation

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would be even stronger if there were fewer international differences in the

way “urban” is defined. Yet the spread of observations around the trend
line is always very wide, indicating that other factors are also involved.
In addition, the discovery of a statistical association does not of course
constitute evidence of a causal connection. Urbanization may be as much
a consequence of economic development as a cause, and there may be
different levels of urbanization suitable to different economies.
Some other independent processes may also contribute to both
urbanization and higher levels of development in cities. The concentration
of political power is an obvious example, resulting in “rent seeking”
rather than productive activity, as people and firms seek preferential
access to political elites. The outcomes could include more public
sector jobs and higher wages in cities, plus higher levels of professional 21. Bekker, S B and Göran
Therborn (2012), Capital
services, construction, embassies, media and consultants seeking access
Cities in Africa: Power and
to government contracts and lobbying over legislation. Bekker and Powerlessness, HSRC Press,
Therborn argue that this has been the dominant factor in the growth Cape Town, South Africa,
of many capital cities in Africa: “Proximity to the centre of patronage and page 93.
redistribution, rather than economic development, has driven the explosive 22. Glaeser, Edward L (2011),
Triumph of the City: How our
growth of African capitals since independence.”(21) Glaeser makes a further Greatest Invention Makes
point about the size distribution of cities: “The more centralized a nation’s us Richer, Smarter, Greener,
government, the larger its capital city, because people are attracted to power as Healthier and Happier,
Macmillan, London, page 225;
ants are to picnics.”(22)
also see Overman, Henry G
A series of other studies involving correlations between some and Anthony J Venables (2010),
measure of agglomeration (such as city size or density) and some measure “Evolving city systems”, in Jo
of economic development (such as average income or growth in output) Beall, Basudeb Guha-Khasnobis
and S M Ravi Kanbur, (editors),
have found that no relationship exists (e.g. studies summarized in Urbanization and Development:
Martin(23)). Leading economic geographers acknowledge that the present Multidisciplinary Perspectives,
understanding of the dynamics of agglomeration and the strength of Oxford University Press, Oxford,
pages 103–123. For a critical
the cause–effect mechanisms remains quite limited, despite considerable interpretation of this view and
theoretical development. According to Storper, for example: a restatement of the economic
logic of urbanization, see
“All in all, work on agglomeration has progressed considerably in Satterthwaite, David (2010),
the NEG [New Economic Geography], urban economics and regional “Urban myths and the mis-use
science. But it remains far from an adequate causal account of the of data that underpin them”,
in Jo Beall, Basudeb Guha-
dynamics of agglomeration and de-agglomeration … Deciphering Khasnobis and S M Ravi Kanbur
the causes of agglomeration will ultimately require a much better (editors), Urbanization and
understanding of the complex interdependencies between agents Development: Multidisciplinary
Perspectives, Oxford University
that lead them to congregate together.”(24) Press, Oxford, pages 83–102.
According to Garretson and Martin, serious weaknesses in the main 23. Martin, Ron (2008), “National
growth versus spatial equality?
theories of agglomeration arise because they “… embody crude conceptions A cautionary note on the new
of geography and history.”(25) One of the consequences is that they are ‘trade-off’ thinking in regional
unable to explain differences in the strength and nature of agglomeration policy discourse”, Regional
effects in different places and at different points in time. Despite being Science Policy and Practice Vol
1, No 1, pages 3–13.
one of the leading proponents of formal economic models based on many
24. See reference 9, Storper
simplifying assumptions, Glaeser recognizes that: “Not only is there no one (2010), page 332.
formula toward urban eminence, but also the sources of success are often highly 25. Garretsen, Harry and Ron
nation specific.”(26) Martin (2010), “Rethinking
With the focus of economic research on the relationship between (new) economic geography
models: taking geography and
cities/urbanization and productivity/growth, there has been little
history more seriously”, Spatial
systematic analysis of the varied forms or composition of urban economic Economic Analysis Vol 5, No 2,
growth. In particular, the problems of narrow, unequal and exclusive page 30.
urban growth have not been examined closely. This gap is a particular 26. See reference 22, Glaeser
concern in Africa, given the recent revival of many national economies (2011), page 225.

470
 U R B A N I Z AT I O N A N D E C O N O M I C G R O W T H : A F R I C A A N D A S I A
27. Economic Commission based on booming commodity exports.(27) The imperative to stimulate
for Africa (2012), Unleashing
growth of any kind has been replaced to some extent by the need to
Africa’s Potential as a Pole
of Growth: Economic Report diversify and broaden the growth trajectory in order to increase the
on Africa, ECA, Addis Ababa, impact on jobs, incomes and poverty.(28) Cities could be a key part of this
186 pages; also IMF (2011), agenda by providing the enabling environments for industrialization
“World economic and financial
surveys: regional economic through essential infrastructure, skills, technical support, investment and
outlook: sub-Saharan Africa”, responsive governance.
International Monetary Fund, Another area of neglect has been the implications of urbanization
Washington DC, 120 pages; and
World Bank (2011), “Africa’s
for ecological systems and the use of natural resources. In the context
future and the World Bank’s of climate change, volatile food and energy prices, and global pressures
support to it”, The World Bank, to cut carbon emissions, it is vital to improve understanding of the
Washington DC, 46 pages. environmental consequences of fast-growing cities. At first sight, these
28. UNCTAD (2011), “Economic concerns should reinforce the case for concentrated rather than dispersed
development in Africa: fostering
industrial development in Africa development, including localized production of energy, food, water,
in the new global environment”, building materials and many other goods and resources. This will reduce
United Nations Conference transportation, economize on the use of land and improve the efficiency
on Trade and Development,
Geneva, 135 pages.
of resource use.(29) As with economic growth, however, there is some
debate about the environmental costs and benefits of urbanization. Much
29. Abbott, John (2012), Green
Infrastructure for Sustainable is bound to depend on the form of urban development, including the
Urban Development in Africa, issues of compactness, mixed land uses, public transport, and design for
Earthscan, Abingdon, 500 energy saving and recycling waste, water and other resources.(30)
pages; also see reference 4.
30. Jabareen, Y R (2006),
“Sustainable urban forms –
their typologies, models and IV. EVIDENCE OF AGGLOMERATION ECONOMIES FROM THE
concepts”, Journal of Planning GLOBAL NORTH
Education and Research Vol 26,
No 1, pages 38–52.
A range of more sophisticated econometric studies in the United States
and Europe have been carried out in recent years in order to estimate the
effects of agglomeration. The emphasis has been on cities of different sizes
rather than urbanization per se. They use different statistical variables,
units of analysis and measurement techniques, and their findings
are unsurprisingly diverse. Many of them conclude that cities do offer
measurable economic advantages, although they are not as substantial
or widespread as often suggested by agglomeration theory or by policy
31. See Ciccone, A (2002), proponents.(31)
“Agglomeration effects in A useful summary of the evidence concluded that the elasticity of city
Europe”, European Economic
Review Vol 46, No 2, pages
productivity with respect to city size is somewhere in the range 0.03–0.08.(32)
213–227; also see reference 9, This means that doubling city size increases productivity by 3–8 per cent. Put
Duranton and Puga (2004); and differently, for an increase of 25 per cent in a city’s population, the output
Eberts, R W and D P McMillen
per worker (and consequently income) rises by 1–2 per cent. Studies
(1999), “Agglomeration
economies and urban public based on individual earnings data find somewhat smaller, although still
infrastructure”, in P Cheshire significant, impacts of agglomeration in big cities.(33) Several other studies
and E Mills (editors), Handbook suggest that the impacts are larger for cities that specialize in particular
of Regional and Urban
Economics, Volume 3: Applied industries, indicating that localization economies may be stronger than
Urban Economics, Elsevier urbanization economies.(34) They found that the elasticity of productivity
North Holland, Amsterdam, ranged widely between 0.01 and 0.20, although most were under 0.10
pages 1455–1495.
(Table 1). This is modest rather than substantial. The impact of other
32. Rosenthal, Stuart S and
drivers of national economic growth, such as trade, technical change
William C Strange (2004),
“Evidence on the nature and and investment in physical and human capital, are likely to be more
sources of agglomeration important.(35)
economies”, in J Vernon The study by Rice et al.(36) also measured the rate at which the
Henderson and Jacques
François Thisse (editors), gains from proximity diminish with distance from the core city. They
Handbook of Regional and found that the advantages are greatest within 40 minutes driving time

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TA B L E 1
Estimates of agglomeration economies in the North

Author Unit of analysis Independent variable Elasticity

Aaaberg (1973) Swedish cities City size (population) 0.02

Shefer (1973) US MSAs(1) City size (population) 0.20
Sveikauskas (1975) US MSAs City size (population) 0.06
Kawashima (1975) US MSAs City size (population) 0.20
Fogarty and Garofalo (1978) US MSAs City size (population) 0.10
Moomaw (1981) US MSAs City size (population) 0.03
Moomaw (1983) US MSAs City size (population) 0.05
Moomaw (1985) US MSAs City size (population) 0.07
Nakamura (1985) Japanese cities City size (population) 0.03
Tabuchi (1986) Japanese cities City size (population) 0.04
Louri (1988) Greek regions City size (population) 0.05
Sveikauskas et al. (1988) US MSAs City size (population) 0.01
Nakamura (1985) Japanese cities Industry size (employment) 0.05
Henderson (1986) Brazilian cities Industry size (employment) 0.11
Henderson (1986) US MSAs Industry size (employment) 0.19
Henderson (2003) US MSAs Industry size (number of plants) 0.03
Ciccone and Hall (1996) US states Employment density 0.06
Ciccone (2002) EU regions Employment density 0.05
Rice et al. (2006) Britain sub-regions Economically active population 0.05
Fingleton (2003) British cities Employment density 0.02

NOTE: (1)
MSA = Metropolitan Statistical Area
SOURCE: Based on Graham, Daniel J (2007), “Agglomeration economies and transport investment”, Discussion
Paper No 2007-11, OECD/ITF Joint Transport Research Centre, Paris, 23 pages; this includes the various
references except for Fingleton (2003), which has been added: see Fingleton, Bernard (2003), “Increasing
returns: evidence from local wage rates in Great Britain”, Oxford Economic Papers Vol 55, No 4, pages
716−739.

of the central city, tapering off quite sharply thereafter and having Urban Economics: Volume 4:
Cities and Geography, Elsevier
little or no effect beyond about 80 minutes. The agglomeration effects
North Holland, Amsterdam,
are four times stronger 30 minutes away than 60 minutes away. This pages 2119–2172.
finding has important implications for urban form and investment in 33. Summarized in Rice,
infrastructure. It suggests that dispersed patterns of urban development Patricia, Anthony J Venables
undermine productivity and growth by lengthening commuting times and Eleonora Patacchini
(2006), “Spatial determinants
and opportunities for face-to-face interactions. It also justifies transport of productivity: analysis for
improvements to reduce travel times and traffic congestion in the largest the regions of Great Britain”,
cities. This was the main reason why a major UK government report Regional Science and Urban
Economics Vol 36, No 6, pages
concluded that the top priority for national transport investment was
727–752.
Greater London.(37) It challenged the fashionable idea of connecting
34. Summarized in Graham,
different cities across the country through high speed rail in favour of Daniel J (2007), “Agglomeration
making mobility across London more efficient. economies and transport

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 U R B A N I Z AT I O N A N D E C O N O M I C G R O W T H : A F R I C A A N D A S I A
investment”, Discussion Paper Another recent UK study disaggregated the effects of agglomeration
No 2007–11, OECD/ITF Joint
for different industries and found somewhat larger effects, with the
Transport Research Centre,
Paris, 23 pages; also Graham, elasticity of productivity varying between 0.07 for manufacturing and
Daniel J (2009), “Identifying 0.19 for services.(38) The effects were small or insignificant for non-
urbanization and localization tradeable services such as retailing, real estate, postal services and public
externalities in manufacturing
and service industries”, Papers services, which tend to locate close to consumers. The biggest effects of all
in Regional Science Vol 88, were for financial services and professional services such as management
No 1, pages 63–84. consultants. This chimes with recent qualitative research across eight
35. See reference 18. European countries on high order business services (lawyers, accountants,
36. See reference 33. marketing, insurance companies, engineering consultants and designers).(39)
37. Eddington, Rod (2006), “The They found strong tendencies for these top of the food chain functions to
Eddington transport study”, concentrate their activities within each country’s largest city.
Department of Transport,
London, UK, 64 pages. Summing up, econometric studies have yielded diverse findings
38. See reference 34, Graham
for the magnitude of agglomeration economies. Some of this is bound
(2009). to be attributable to methodological differences and varied national
39. Hall, Peter Geoffrey circumstances. Whatever the reasons, the weight of evidence is not
and Kathy Pain (2006), The substantial enough to justify popular assertions that cities are “engines
Polycentric Metropolis: of growth”. Writing in a European context, Martin concludes that: “We
Learning from Mega-city
Regions in Europe, Earthscan, simply do not know enough … to justify yet further concentration of economic
London, 228 pages. activity in already congested and overheated regions and agglomerations.”(40)
40. See reference 23, page 10. Another recent European study concurs that:
“Many of the standard textbook arguments no longer hold in many
parts of Europe … large cities no longer play the driving role … a
policy just focusing on large urban areas in the EU will likely miss its
target in terms of maximizing aggregate growth … size is not a good
41. Dijkstra, Lewis, Enrique predictor of growth.”(41)
Garcilazo and Philip McCann
(2013), “The economic A recent UK study also raised doubts about the special advantages of
performance of European cities cities: “There is no overwhelming evidence … in support of British cities being
and city regions: myths and
realities”, European Planning the ideal locations for encouraging growth.”(42)
Studies Vol 21, No 3, pages 345 One concern is the level of aggregation. Most previous studies are
and 347–349. based on city level data, which may be too highly aggregated to reveal
42. Harris, Richard and John the way agglomeration economies operate. These are essentially about
Moffat (2012), “Is productivity
higher in British cities?”, Journal
the interactions between individual firms, workers and supporting
of Regional Science Vol 52, No institutions. More disaggregated analysis based on data at the level of
5, page 777. industries, firms and small areas might reflect the underlying processes
more clearly. They might also identify the industrial and geographical scope
of agglomeration economies more accurately, including the significance
of the spatial structure of cities and role of efficient infrastructure.
Agglomeration effects should also not be examined in isolation of other
factors affecting productivity and development, such as the industrial
and occupational structure, level of technology and skills, available land
supply, and internal and external connectivity. Some of these forces are
likely to reinforce each other, with successful cities emerging as the sum
of the parts.

V. EVIDENCE FROM ASIA

A smaller body of econometric research exists on agglomeration in

developing countries of the global South, particularly Asia. This has been
43. See reference 22, Overman usefully summarized by Overman and Venables, who note that “… the
and Venables (2010), page 104. developing country literature remains thin.”(43) The main findings are shown

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TA B L E 2
Analyses of agglomeration economies in the South

Country Author (date) Main conclusions

China Chen (1996) Localization economies important for the two industries studied
India Shukla (1996) Urbanization stronger than localization economies in 11 out
of 13 industries
India Mitra (2000) Urbanization economies important in 11 out of 17 industries
India Lall et al. (2003) Urbanization economies important in eight industries; localization
diseconomies
India Lall et al. (2004) No localization or urbanization economies
Indonesia Henderson and Localization economies in three industries; urbanization
Kuncoro (1996) economies in three industries
Korea Lee and Zang (1998) Localization not urbanization economies
Korea Henderson et al. (2001) Localization economies in three industries; urbanization
economies in one industry

SOURCE: Overman, Henry G and Anthony J Venables (2010), “Evolving city systems”, in Jo Beall, Basudeb
Guha-Khasnobis and S M Ravi Kanbur (editors), Urbanization and Development: Multidisciplinary Perspectives,
Oxford University Press, Oxford, pages 103−123.

in Table 2. They draw particular attention to the relative importance of

localization and urbanization economies rather than precise measures of
the relationship between city size and productivity. There have been no
econometric studies of this kind in Africa to our knowledge.
The picture that emerges is very mixed. In some studies, the industry-
specific externalities seem to be more important than the cross-cutting
externalities, but in others the reverse is true. Few of the studies examined
service sectors. Case studies of particular industries confirmed that
localized concentrations of specific types of firms offered advantages.
These came about through the exchange of goods, information and
people. An important finding for policy purposes was that informal
enterprises can perform complementary functions to formal companies
– they do not simply add to local congestion and drive up urban costs.
Overman and Venables’ overall conclusion was that: “There are substantial
productivity advantages to urban centres and, as such, the development of these
centres is a key part of countries’ economic growth.”(44) 44. See reference 22, Overman
and Venables (2010), page 114.

VI. EVIDENCE FROM AFRICA

Although there have been no similar studies of agglomeration in Africa,

there have been other attempts to measure the link between African
urbanization and development. There have also been comparisons
with other continents. Many of their findings have been contradictory.
To our knowledge, four studies have found no relationship between
urbanization and development in Africa, while three have found some
form of connection.
A substantial study of the relationship between urbanization and
poverty based on 90 developing countries around the world found that
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urbanization was widely associated with a reduction in poverty, because

it was related to stronger economic growth:
“The urbanization process has played a quantitatively important
positive role in overall poverty reduction, by providing new
opportunities to rural out-migrants (some of whom escape poverty in
the process) and through the second-round impact of urbanization
45. Ravallion, M, S Chen and on the living standards of those who remain in rural areas.”(45)
P Sangraula (2007), “New
evidence on the urbanization Yet sub-Saharan Africa was an exception:
of global poverty”, World Bank
Policy Research Working Paper, “The pattern of falling overall poverty with urbanization is far less
Washington DC, page 27. evident in sub-Saharan Africa, where the population (including the
46. See reference 45, page 28. poor) has been urbanizing, yet with little reduction in aggregate
poverty.”(46)
An earlier international study concluded that: “There is generally an
47. Kamete, Amin Y, Arne unequivocal [positive] correlation between urbanization and economic
Tostensen and Inge Tvedten development and growth, but in Africa this appears not to apply.”(47)
(2001), “From global village to A third study examined the relationship between average income
urban globe: urbanization and
poverty in Africa: implications
and urbanization for some 80 countries at two points in time – 1960 and
for Norwegian aid policy”, Chr. 2004.(48) It confirmed a relationship between urbanization and income,
Michelsen Institute, Bergen, particularly at higher levels of urbanization, but it was not simple or
quoted in Njoh, Ambeh J (2003), linear. This link had also strengthened between 1960 and 2004. A key
“Urbanization and development
in sub-Saharan Africa”, Cities conclusion was that:
Vol 20, No 3, page 169.
“… the links between urbanization and income are relatively weak at
48. Bloom, D E and T Khanna
(2007), “The urban revolution: low levels of development … urbanization in Africa over the past 45
rapid urbanization may prove years has been accompanied by sluggish economic growth.”(49)
a blessing provided the
world takes notice and plans A fourth study focused only on Africa found that nearly three-quarters (71
accordingly”, Finance and per cent) of the 32 countries analyzed actually had a negative correlation
Development Vol 44, No 3,
pages 9−14.
between the level of urbanization and GDP over the 1985–2000
period.(50) This could be because people left rural areas as a result of poverty
49. See reference 48, page 11.
and crises, or because migration to urban areas undermined economic
50. Bouare (2006) quoted in
White, Michael J, Blessing performance by contributing to undue congestion and diverting scarce
U Mberu and Mark A public resources to fund social infrastructure. Similarly, the World
Collingson (2008), “African Development Report 1999/2000 argued that African cities are exceptional
urbanization: recent trends
and implications”, in George
in failing to serve as drivers of growth: “Instead they are part of the cause
Martine, Gordon McGranahan, and a major symptom of the economic and social crises that have enveloped the
Mark Montgomery and Rogelio continent.”(51)
Fernández-Castilla (editors),
Various observers have suggested that Africa may have urbanized
The New Global Frontier:
Urbanization, Poverty and prematurely in response to push factors (rural droughts, falling
Environment in the 21st agricultural prices and ethnic conflicts) rather than the pull of
Century, Earthscan, London, economic opportunities.(52) Indeed, 81 per cent of African governments
pages 301–316.
believe that urbanization is excessive and have policies to reduce
51. World Bank (2000),
World Development Report
rural–urban migration.(53) These governments have strong anti-urban
1999/2000: Entering the 21st sentiments because of the social tensions, overcrowding and physical
Century, Oxford University squalor created in cities, combined with the breakdown of traditional
Press, New York, page 130.
family structures and the spread of crime and disease.(54)
52. See, for example, One qualification to bear in mind about the four studies mentioned
Commission for Africa (2005),
Our Common Interest: Report above is that censuses are rare in many of the poorest countries and
of the Commission for Africa, estimates of urbanization are often projections based on old data. Therefore
London, 464 pages. there are doubts about the reliability of census data for examining the
relationship between urbanization and development.(55) Official statistics

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E N V I R O N M E N T & U R B A N I Z AT I O N Vol 25 No 2 October 2013

suggested relatively rapid urbanization in many sub-Saharan African 53. United Nations (2010),
countries in the 1990s, despite limited economic growth. Yet more recent World Population Policies 2009,
Department of Economic and
census data indicate slower rates of urbanization, perhaps in response to Social Affairs, New York, 504
scarce economic opportunities.(56) Other measures of agglomeration that pages.
claim greater international comparability suggest that Africa is not as 54. McGranahan, G, D
urbanized as the standard urbanization rates imply.(57) Satterthwaite, C Tacoli, D Mitlin
and I Turok (2009), “Africa’s
The idea that there are no economic advantages from urbanization urban transition and the role of
in Africa has been countered by at least three other studies, which show regional collaboration”, Human
a connection between urbanization and development. Njoh(58) examined Settlements Working Paper
data for 40 sub-Saharan African countries and found a strong positive Series, Urban Change 5, IIED,
London, 58 pages.
correlation between urbanization and human development. In a broader
55. See reference 16.
study, Kessides(59) confirmed a relationship between urbanization and
56. Potts, Deborah (2009),
growth in 15 of the 24 African countries she examined over the period “The slowing of sub-Saharan
1990–2003. She also showed that national growth stemmed from urban Africa’s urbanization: evidence
industries, supporting the idea of cities as growth generators. In a fuller and implications for urban
livelihoods”, Environment and
report she concluded that:
Urbanization Vol 21, No 1, April,
pages 253–259; also Potts,
“Africa cannot simply be characterized as ‘urbanization without
Deborah (2012), “Whatever
growth’, and the term does not even fit many of the countries. The happened to Africa’s rapid
economic growth that has taken place in the past decade derives urbanization?”, Counterpoints,
mainly from urban-based sectors (industry and services), and this Africa Research Institute,
London, 20 pages.
is especially true of the better-performing economies. But cities
57. Uchida, Hirotsuga and
have clearly not lived up to their productive potential because of Andrew Nelson (2010),
widespread neglect and bad management.”(60) “Agglomeration index: towards
a new measure of urban
She recognized that the gains from agglomeration may be curtailed concentration”, in Jo Beall,
if shortcomings in urban services, land, transport, housing and local Basudeb Guha-Khasnobis
and S M Ravi Kanbur (editors),
government mean that the costs outweigh the benefits:
Urbanization and Development:
Multidisciplinary Perspectives,
“The simple concentration of firms and people does not guarantee
Oxford University Press, Oxford,
that agglomeration economies will be realized. Many African firms pages 41–59.
are not experiencing the market efficiencies, ease of mobility and low 58. See reference 47, Njoh
transactions costs that better-managed cities could deliver, much to (2003).
the detriment of the economy and competitiveness.”(61) 59. Kessides, Christine (2007),
“The urban transition in sub-
A more recent study sought to model the impact of accelerated Saharan Africa: challenges and
urbanization in Africa on economic growth, poverty and migration.(62) opportunities”, Environment
and Planning C – Government
They used empirical data from two agriculture-based countries where and Policy Vol 24, No 4, pages
urban development is central to policy debates – Ethiopia and Uganda. A 466–485.
related objective was to compare the effectiveness of public investment in 60. Kessides, Christine (2005),
rural and urban areas. The authors concluded that: “The urban transition in sub-
Saharan Africa: implications for
economic growth and poverty
“… urbanization and agglomeration economies are important sources reduction”, Africa Region
of economic growth and might well be a driver of long-term structural Working Paper Series No 97,
transformation in Africa. However, over the short term, investing in World Bank, Washington DC,
page xxii.
major cities does little to address national poverty.”(63)
61. See reference 60, page ii.
62. See reference 18; also
In other words, urbanization can help to promote economic growth and Dorosh, Paul and James
industrialization, but the scale of employment generated is modest in Thurlow (2012b), “Can cities
the short term and the benefits for poor rural communities are limited. or towns drive African
Hence, urban strategies may widen regional inequalities and cause social development? Economy-
wide analysis for Ethiopia
instability. They concluded that urban development should be actively and Uganda”, Working Paper,
encouraged, but it should also be supported by continued investment WIDER, Helsinki, 24 pages.
in rural agriculture. In a related paper they also advocated a better 63. See reference 62, Dorosh
understanding of “… agglomeration economies within particular sectors and Thurlow (2012b), page 2.

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 U R B A N I Z AT I O N A N D E C O N O M I C G R O W T H : A F R I C A A N D A S I A

and developing country contexts, especially the quantity and types of public
64. See reference 18, page 121. investments needed to enhance them.”(64)
There is a related issue of whether people migrating from rural
areas are better off in urban areas. Once again, this is difficult to assess
and evidence is sparse. Although living conditions in informal urban
settlements are often very poor, many migrants do seem to benefit from
the opportunity to move to cities through improved livelihoods and/or
better services. Awareness of this prompts further rounds of migration
by relatives and acquaintances. The limited research available suggests
that on balance, and after a passage of time, people tend to be better
off than if they had stayed in rural locations, and are therefore making
economically rational decisions. Urban incomes are generally higher than
rural incomes, and a review of the evidence concluded that:
“…although there is substantial fluctuation in individual incomes
in urban areas, rural-to-urban migrants are able to attain earnings
65. Montgomery, Mark, Richard comparable to those of native urbanites after an adjustment period.”(65)
Stren, Barney Cohen and Holly
E Reed (editors) (2003), Cities It is symptomatic of the wider shift in international thinking towards
Transformed: Demographic urban areas noted earlier that the World Bank’s perspective on African
Change and its Implications in
the Developing World, National
urbanization has turned around during the last decade, from seeing the
Academy Press, Washington phenomenon as a cause of economic problems to being an important
DC, page 353. catalyst for success. The World Development Report 2009 singled out Africa
for special attention because of the unmatched potential of its urban areas
to boost growth. Anti-urban attitudes on the continent would also need
to change: “Urbanization, done right, can help development more in Africa
66. See reference 2, World Bank than elsewhere.”(66) Inefficient urban land markets with informal tenure
(2009), page 285. systems and poor basic services were key impediments to functional
urban systems and economic development.
The experience of accelerated economic growth in Africa over the last
decade provides a new context for considering the relationship between
urbanization and development. Stagnation and de-industrialization in
many African economies during the 1980s and 1990s made it difficult
for cities to perform well. Economic decline and structural adjustment
policies imposed by external organizations weakened state institutions
and widened informality. The level of GDP per capita of Guinea Bissau,
Liberia, Cameroon, Zimbabwe and Madagascar actually declined during
67. Turok, Ivan (2013), “Securing this period.(67) The recent resurgence of many African economies has been
the resurgence of African driven by the extraction and exporting of primary commodities (especially
cities”, Local Economy Vol 28,
oil, gas, metals and minerals such as diamonds and coal) and agricultural
No 2, pages 142–157.
products.(68) This form of resource-based growth is not naturally urban
68. See reference 27, Economic
Commission for Africa (2012); oriented. Hence, there is a danger that Africa’s current economic
also see reference 27, IMF trajectory will also fail to build a connection between urbanization and
(2011); and The Economist development.
(2011), “The hopeful continent”,
3 December, accessible at
There is a strong case for government policies to align economic growth
www.economist.com. and urbanization agendas through vigorous pursuit of diversification and
industrialization, i.e. adding value to raw materials, minerals and other
69. See reference 67; also see natural resources.(69) Global experience suggests that cities can help to
reference 28. transform productive activity and build more integrated economies with
stronger backward and forward linkages. They can provide the enabling
environments through physical and social infrastructure, human capital,
financial systems, technical support and responsive governance. More
prosperous cities would also stimulate rural economies and incomes by
raising the demand for all kinds of natural resources and agricultural

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products. This growth path could be more sustainable if combined with

a green economy strategy designed to support renewable energy, restore
ecosystems, recycle resources and regionalize the production of food,
water, building materials and other goods and services.(70) It could also be 70. See reference 29, Abbott
more equitable if combined with inclusive policies designed to give better (2012); also see reference 4.

access to urban benefits to low-income residents, and foster rural–urban

linkages beneficial to rural dwellers.

VII. IMPLICATIONS FOR POLICIES TOWARDS URBANIZATION

The growing recognition by leading global organizations and intellectuals
that urbanization is relevant to socioeconomic development is highly
significant, especially given the traditional neglect of cities in mainstream
economic theory and policy and in development studies and practice.
While urbanization provides many economic, social and environmental
opportunities, urban population growth in low- and middle-income
countries is also one of the major global challenges of the twenty-first
century. This makes it all the more important to move beyond rhetorical
statements about the economic vitality of cities and the dynamic impact of
urbanization, and to deepen our understanding of the processes involved,
including how to plan and manage the phenomenon to best effect. There
is an urgent research and policy agenda that needs all the support it can
get from international development agencies, national governments, civil
society organizations and think tanks.
The evidence assembled for this paper suggests that the development
effects of urbanization and the magnitude of agglomeration economies
are very variable. There is no simple linear relationship between
urbanization and economic growth, or between city size and productivity.
While urbanization often has the potential to promote economic growth,
the extent to which this potential is realized is likely to depend on how
conducive the institutional setting is and how appropriate the investments
in public infrastructure are. Removing barriers to rural–urban mobility
may enable economic growth, but the economic benefits will be much
larger with supportive policies, markets and infrastructure investments.
At least in principle, governments can work to enable the benefits
of agglomeration to be better achieved and the costs of congestion to
be reduced. To do this effectively requires intervening carefully in the
urbanization process, so as to improve and not undermine its voluntary
nature, for example by helping people to make better-informed choices.
Incremental improvements are possible, and an obvious first step is for
cities to use realistic projections of future populations as the basis for
investing in public infrastructure and implementing land policies. In
some contexts it is also important for national governments to give cities
the incentive to plan for this growth and to discourage them from using
a lack of services to deter low-income migrants.(71) 71. Feler, Leo and J
Vernon Henderson (2011),
The character or form of urbanization also influences its effect on “Exclusionary policies in urban
poverty and the natural environment. Failing to plan on the basis of development: under-servicing
population projections is most detrimental to the prospects of the poorest migrant households in Brazilian
urban dwellers and is also environmentally problematic. Sprawling cities”, Journal of Urban
Economics Vol 69, No 3, pages
settlements extending carelessly over environmentally sensitive land 253–272.
will undermine ecological services. When located on the urban outskirts
far from economic opportunities, informal settlements may not only

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lack basic water and sanitation services, but also trap communities
in places where the prospects of upward mobility are remote. Urban
overcrowding and congestion are not merely economic constraints, drags
on productivity and deterrents to private investment. They also worsen
living conditions, spread disease, undermine people’s life chances and
fuel dissatisfaction and social unrest. The inefficient use of urban land as
a result of haphazard and poorly coordinated development, or of active
exclusionary policies, contributes to environmental degradation, extra
travel, higher carbon emissions and air pollution.
Judgements about patterns of urbanization need to be based on social
and environmental considerations as well as market-based economic
calculations. In other words, an holistic perspective is important.
Economic, social and environmental outcomes all appear to be influenced
by the form or “quality” of urbanization as well as its level (the proportion
of the population living in urban areas) or rate (the annual increase in the
level of urbanization). The quality of urbanization includes the way in
which people and firms find their way into cities – the position people
occupy in urban labour and housing markets and social networks, and
the niche product markets, supply chains, collaborative networks and
physical spaces occupied by firms.
Government policies to encourage or discourage urbanization can
have a big effect on the character of urbanization, whether or not they
influence the rate of urbanization. Policies towards informal settlements
72. See reference 71; also are especially important, particularly when these areas function as
McGranahan, Gordon, gateways to urban labour markets, housing systems and public facilities
Diana Mitlin and David such as schools and clinics. Governments can make entry conditions much
Satterthwaite (2008), “Land
and services for the urban
more difficult through indifference or hostility to shack settlements, or
poor in rapidly urbanizing they can pursue a more positive and supportive approach, including the
countries”, in George Martine, provision of land, upgrading shelter and services, and help with building
Gordon McGranahan, Mark sustainable livelihoods. In some countries, just removing the petty rules,
Montgomery and Rogelio
Fernández-Castilla (editors), regulations and other institutional barriers that frustrate migrants trying
The New Global Frontier: to gain a foothold in the city would be worthwhile.(72)
Urbanization, Poverty and Given current uncertainties about the relationship between
Environment in the 21st
Century, Earthscan, London,
urbanization, growth and environmental sustainability, it makes more
pages 77–98. sense to seek out ways of enabling forms of urbanization that clearly
73. See reference 2, World Bank contribute to these goals than to encourage (or discourage) urbanization
(2009). per se. Those who believe urbanization is advantageous, such as the
74. Neuman, M (2005), “The authors of the World Development Report 2009, can make the case for
compact city fallacy”, Journal urban investments without arguing that these be treated more favourably
of Planning Education and
Research Vol 25, No 1, pages than rural investments.(73) Similarly, those who believe urbanization
11–26. is advantageous can argue that cities should be more welcoming and
75. Davoudi, Simin, Jenny inclusive, while condemning rural measures that deprive local residents
Crawford and Abid Mehmood of access to land and drive them to leave their rural homes. We need to
(2009), Planning for Climate
move away from the notion that influencing the rate of urbanization is
Change: Strategies for
Mitigation and Adaptation for an appropriate policy goal in and of itself. It is not only very difficult to
Spatial Planners, Earthscan, influence, but the ultimate impact can be positive or negative, depending
London, 344 pages; also see on how that influence is achieved.
reference 30; and Vella, A
and M Morad (2011), “Taming Much the same applies to efforts to secure social and environmental
the metropolis: revisiting the benefits from urbanization and compact settlement. There are some
prospect of achieving compact doubts about the social and environmental implications of many very
sustainable cities”, Local
Economy: The Journal of the
dense settlements, as noted above.(74) However, if used appropriately,
Local Economy Policy Unit Vol density can improve the environmental and economic performance of
26, No 1, pages 52–59. human settlements.(75) It can facilitate public transport, reduce the cost

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of bulk infrastructure and reduce encroachment on fragile ecosystems.

It can also support a vibrant public realm and creative atmosphere in
which people from different backgrounds mix and mingle, with benefits
for social cohesion and cultural industries. For this to be achieved,
however, density needs to be used as a tool and be seen as a potentially
advantageous outcome of good social and environmental policies, and
should not be an end in itself.

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