Urban informality as regulatory ambiguity: a case study of urban village redevelopment in Shenzhen

Housing demolition in urban villages is a contentious subject. Examining the state-informality nexus, this study argues that informality enters the tensions between interpretations of regulations as text or intent. By utilizing the two analytical categories, this paper argues that higher-level government strategically provides an ambiguous regulatory framework that enables district governments utilized informality as a strategy in the urban village redevelopment in Shenzhen. Three specific strategies were identified: finding alternatives, conceding the use value, and reinterpret ambiguous terms in the context of regulatory framework. Thus, the district government has been able to successfully promote the demolition of houses. As demonstrated in the case study, local officials should understand the intent of regulations and policies in addition to enforcing the text of them. If the intent of a regulation is not contradicted, its enforcement is feasible even if it deviates from the text. This study contributes to international debates on informal settlements and housing governance.