- Email: [email protected]
Theories of urban politics
344
Book Reviews
D. JUDGE, G. STOKER and H. WOLMAN (eds), Theories of Urban Politics. Sage, London, 1995, 310 pp., £13.95 paperback. Theories of Urban Politics is a comprehensive collection of 14 papers delineating the state of contemporary, mostly transatlantic, debate in urban politics. It consists of four sections following an introductory chapter which outlines the eclectic character of current approaches to urban theory, and a catholic interpretation of 'theory'. This ranges across, and at times seeks to integrate, normative, prescriptive and empirical theories, together with more informal contributions such as models, conceptual frameworks and perspectives. In addition the first chapter usefully warns of the fluidity and internal differentiation of urban theories, processes of conceptual dispute and reaction, and the need for sensitivity to spatial, temporal and socio-economic contexts. Subsequently, Part 1 examines notions of urban power incorporating pluralism, elite theory and growth machines, and regime theories; Part 2 introduces urban government and democracy, the nature of public bureaucracy and the role of leading officials in city government; Part 3 moves on to consider the place of the citizen in urban political processes; and Part 4 steps back to situate urban politics in a broader socio-economic and institutional context through analysis of local autonomy, Marxist approaches and emergent themes in regulation theory. Given this breadth the text is concerned throughout to introduce, explain, review and critically evaluate theories, and thus to give a flavour of current thinking. In addition the book attempts a "modest contribution to the development of cross-national urban research . . . [through a] . . . ground clearing exercise to enable a serious assessment of the conceptual foundations that might be available f o r . . , comparative study" (p. 12). In many ways this is a very effective textbook. The clear, detailed and critical exposition of a range of flexible and, at times, rather tortuous theoretical developments will be of real benefit, especially in teaching. In Part 1, for example, the recently influential debate between revitalised urban pluralist and younger urban regime theories is handled with subtlety and attention to detail. In Chapter 2 Judge returns initially to the original pluralist formulations of Dahl, Wolfinger and Polsby and traces the subsequent emergence of more nuanced accounts of neo-pluralism to reflect upon the shortcomings of established critiques and on the process of academic debate over time. Thus in establishing the central elements of urban pluralism, its theoretical, political and ideological status, its methodological character and its complex spatial and temporal evolution Judge rejects a range of simplistic and more astute critical responses. As such, pluralists accept that decision making may be restricted to small groups though indirect influence is exerted much more widely; that elites exist, though different groups make different decisions in different issue areas; and that inequalities of influence are axiomatic and related in part to income disparities. Also, at a more sophisticated level, Stone's reading of classical pluralism over-emphasises the role of voting and elections, disallows pluralists' recognition of complex government-economy relations, and portrays a pluralist conceptualisation of an autonomous state. However, as pluralist thinking evolved into neo-pluralist versions, analysis became increasingly sensitised to the structural constraints of capitalism and to the systemic power of business. For Judge, this refinement of pluralism in the face of structuralist critiques and developing spatial and temporal comparative analyses reflects parallel changes in regime theories which also responded to neo-Marxist challenges. Here neo-pluralist consciousness of structural constraints, business influence, resource inequalities and social stratification is seen to pre-empt regime theorists' concerns so that the remaining differences become limited or negligible. However, Stoker (Chapter 4) is more cautious. Whilst accepting some shared ground with transformed neo-pluralist models, regime theory offers a distinctive approach to urban politics and power from the 'hyperpluralist' frameworks which have tended to characterise urban pluralism. Thus in contrast to the perceived myriad organised interests, weak government, policy instability and fragmented decision-making structures of an intense pluralism, regime theory provides a new conceptual framework and theoretical approach to complex government-non-government relations in a restructured urban arena. Firstly, and perhaps most clearly in parallel with neo-pluralist themes, regime theory
Book Reviews
345
recognises the systemic power of business, but moves against instrumentalist readings to emphasise the relative autonomy of urban decision makers and the salience of politics: secondly, regime approaches exhibit a distinctive assessment of 'power' characterised through the production of social benefits and associated social and political capacities rather than patterns of social control; thirdly, regimes reflect longer term stable relations between government and non-government sectors and the establishment of co-operative network-based relations; and finally, regime theory problematises the formation of preferences which pluralist models broadly accept as given. Stoker' s assessment provides a clear summary of regime theory, its relationship with various pluralist models and its resonance with patterns of restructuring in the 1990s. However, the purpose in briefly tracing these accounts of the pluralism-regime debate is to highlight some of the strengths of Theories of Urban Politics. Here an intricate and historically developing dispute is presented with a precision and subtlety which usefully engages the readers in the process of academic debate and refinement, hinting at the rather personalised way that conceptual conflict can occur, but not at the expense of a broader critical perspective. In turn this is advanced by the authors' direct engagement with each other rather than talking blindly past alternative and contradictory formulations. Also, the analysis is valuable in reflecting upon the distinctive experiences of the models in comparative research, and making critical linkages with both contemporary patterns of restructuring and broader conceptual and theoretical developments. Overall, then, this is a very good collection. It will find a wide readership as a central text in both undergraduate and postgraduate courses on urban theory. The breadth and depth of coverage is well judged (though one might perhaps expect rather more attention to issues of postmodernity), the presentation effective, and, at £14, excellent value for money. Dave Valler University of Sheffield, UK
RONAN PADDISON, J O H N MONEY and BILL LEVER (eds), International Perspectives in Urban Studies 3. Jessica Kingsley Publishers, London, 1995, 288 pp., £18.95. The chapters in this book were first published as papers in Urban Studies, Vol. 31, Numbers 4 and 5 in May 1994. Publication in book form provides the third in what is now becoming a series, and a very useful series it is. The third Urban Studies Review (the name given to the series), like its predecessors, provides a series of literature reviews in the broad field of urban studies. In this particular volume there are 10 chapters. Overall the reviews consider a wide span of literature, but within that span a number of the chapters are narrowly focused. The first chapter, on urban economic development, is the third of three reviews by Bovaird on this theme in this book series. With many references, the author explores policy developments in Britain, the US and Germany, using a theme of paradox: of increasing policy activity and change, with a lack of conspicuous monitored success. He uses the business organisation literature to explore required strategies of change and the relevance of organisational learning. His themes are illustrated by case studies: community businesses in Scotland, Cardiff Bay Urban Development Corporation, science parks, training policies, the Greater London Enterprise Board, business advice centres, the American Economic Development District programme and small firm financial assistance. The author argues that it is commonplace in local economic development for failure to be addressed very inadequately, or to be covered up with obfuscation. There are three urban change chapters. Champion considers recent literature on the impact of international migration on demographic change in the more developed nations. He highlights problems of research in this area, but then identifies the principal changes over the past two decades in these migration flows. The demographic impact of the flows is
Book Reviews
D. JUDGE, G. STOKER and H. WOLMAN (eds), Theories of Urban Politics. Sage, London, 1995, 310 pp., £13.95 paperback. Theories of Urban Politics is a comprehensive collection of 14 papers delineating the state of contemporary, mostly transatlantic, debate in urban politics. It consists of four sections following an introductory chapter which outlines the eclectic character of current approaches to urban theory, and a catholic interpretation of 'theory'. This ranges across, and at times seeks to integrate, normative, prescriptive and empirical theories, together with more informal contributions such as models, conceptual frameworks and perspectives. In addition the first chapter usefully warns of the fluidity and internal differentiation of urban theories, processes of conceptual dispute and reaction, and the need for sensitivity to spatial, temporal and socio-economic contexts. Subsequently, Part 1 examines notions of urban power incorporating pluralism, elite theory and growth machines, and regime theories; Part 2 introduces urban government and democracy, the nature of public bureaucracy and the role of leading officials in city government; Part 3 moves on to consider the place of the citizen in urban political processes; and Part 4 steps back to situate urban politics in a broader socio-economic and institutional context through analysis of local autonomy, Marxist approaches and emergent themes in regulation theory. Given this breadth the text is concerned throughout to introduce, explain, review and critically evaluate theories, and thus to give a flavour of current thinking. In addition the book attempts a "modest contribution to the development of cross-national urban research . . . [through a] . . . ground clearing exercise to enable a serious assessment of the conceptual foundations that might be available f o r . . , comparative study" (p. 12). In many ways this is a very effective textbook. The clear, detailed and critical exposition of a range of flexible and, at times, rather tortuous theoretical developments will be of real benefit, especially in teaching. In Part 1, for example, the recently influential debate between revitalised urban pluralist and younger urban regime theories is handled with subtlety and attention to detail. In Chapter 2 Judge returns initially to the original pluralist formulations of Dahl, Wolfinger and Polsby and traces the subsequent emergence of more nuanced accounts of neo-pluralism to reflect upon the shortcomings of established critiques and on the process of academic debate over time. Thus in establishing the central elements of urban pluralism, its theoretical, political and ideological status, its methodological character and its complex spatial and temporal evolution Judge rejects a range of simplistic and more astute critical responses. As such, pluralists accept that decision making may be restricted to small groups though indirect influence is exerted much more widely; that elites exist, though different groups make different decisions in different issue areas; and that inequalities of influence are axiomatic and related in part to income disparities. Also, at a more sophisticated level, Stone's reading of classical pluralism over-emphasises the role of voting and elections, disallows pluralists' recognition of complex government-economy relations, and portrays a pluralist conceptualisation of an autonomous state. However, as pluralist thinking evolved into neo-pluralist versions, analysis became increasingly sensitised to the structural constraints of capitalism and to the systemic power of business. For Judge, this refinement of pluralism in the face of structuralist critiques and developing spatial and temporal comparative analyses reflects parallel changes in regime theories which also responded to neo-Marxist challenges. Here neo-pluralist consciousness of structural constraints, business influence, resource inequalities and social stratification is seen to pre-empt regime theorists' concerns so that the remaining differences become limited or negligible. However, Stoker (Chapter 4) is more cautious. Whilst accepting some shared ground with transformed neo-pluralist models, regime theory offers a distinctive approach to urban politics and power from the 'hyperpluralist' frameworks which have tended to characterise urban pluralism. Thus in contrast to the perceived myriad organised interests, weak government, policy instability and fragmented decision-making structures of an intense pluralism, regime theory provides a new conceptual framework and theoretical approach to complex government-non-government relations in a restructured urban arena. Firstly, and perhaps most clearly in parallel with neo-pluralist themes, regime theory
Book Reviews
345
recognises the systemic power of business, but moves against instrumentalist readings to emphasise the relative autonomy of urban decision makers and the salience of politics: secondly, regime approaches exhibit a distinctive assessment of 'power' characterised through the production of social benefits and associated social and political capacities rather than patterns of social control; thirdly, regimes reflect longer term stable relations between government and non-government sectors and the establishment of co-operative network-based relations; and finally, regime theory problematises the formation of preferences which pluralist models broadly accept as given. Stoker' s assessment provides a clear summary of regime theory, its relationship with various pluralist models and its resonance with patterns of restructuring in the 1990s. However, the purpose in briefly tracing these accounts of the pluralism-regime debate is to highlight some of the strengths of Theories of Urban Politics. Here an intricate and historically developing dispute is presented with a precision and subtlety which usefully engages the readers in the process of academic debate and refinement, hinting at the rather personalised way that conceptual conflict can occur, but not at the expense of a broader critical perspective. In turn this is advanced by the authors' direct engagement with each other rather than talking blindly past alternative and contradictory formulations. Also, the analysis is valuable in reflecting upon the distinctive experiences of the models in comparative research, and making critical linkages with both contemporary patterns of restructuring and broader conceptual and theoretical developments. Overall, then, this is a very good collection. It will find a wide readership as a central text in both undergraduate and postgraduate courses on urban theory. The breadth and depth of coverage is well judged (though one might perhaps expect rather more attention to issues of postmodernity), the presentation effective, and, at £14, excellent value for money. Dave Valler University of Sheffield, UK
RONAN PADDISON, J O H N MONEY and BILL LEVER (eds), International Perspectives in Urban Studies 3. Jessica Kingsley Publishers, London, 1995, 288 pp., £18.95. The chapters in this book were first published as papers in Urban Studies, Vol. 31, Numbers 4 and 5 in May 1994. Publication in book form provides the third in what is now becoming a series, and a very useful series it is. The third Urban Studies Review (the name given to the series), like its predecessors, provides a series of literature reviews in the broad field of urban studies. In this particular volume there are 10 chapters. Overall the reviews consider a wide span of literature, but within that span a number of the chapters are narrowly focused. The first chapter, on urban economic development, is the third of three reviews by Bovaird on this theme in this book series. With many references, the author explores policy developments in Britain, the US and Germany, using a theme of paradox: of increasing policy activity and change, with a lack of conspicuous monitored success. He uses the business organisation literature to explore required strategies of change and the relevance of organisational learning. His themes are illustrated by case studies: community businesses in Scotland, Cardiff Bay Urban Development Corporation, science parks, training policies, the Greater London Enterprise Board, business advice centres, the American Economic Development District programme and small firm financial assistance. The author argues that it is commonplace in local economic development for failure to be addressed very inadequately, or to be covered up with obfuscation. There are three urban change chapters. Champion considers recent literature on the impact of international migration on demographic change in the more developed nations. He highlights problems of research in this area, but then identifies the principal changes over the past two decades in these migration flows. The demographic impact of the flows is