3 What Drives City Growth in the DevelopingWorld? Allen C. Kelleyand JeffreyG. Williamson C C ities are capital-intensive,a stylizedfact which has led many pessimiststo assert that current rates of city growth in the developingworldcannot be sustained. To make matters worse, cities are stocked with public capitalat low or zero user charges,and in that sensethey are too capital-intensive.Since the social costs of inmigration thus exceed private costs, the number and sizes of cities turn out to be excessive.Furthermore,the increasing scarcity of urban land encourages the substitution of capital for land and increasescapital intensity. When the economy can no longer finance such urban costs-when it fails, for instance, to copewith socialoverheadand housing requirements-the process of urbanization is retarded. No doubt the qualitativeanalysisis correct: cities are capital-intensiveand have a voraciousappetitefor savings and accumulation.But is the quantitativeemphasis-the idea that cities are "too big"-warranted? It is also often alleged that rapid city growth in the developingcountries represents a disequilibrium,that these countries have"overurbanized," and that a painful structural adjustment will eventuallybe required.Analysts of urban problems in the developingworld point out that migrants are attracted to the cities in the hope that they (or their children)willbe selectedfor training and employment in protected, high-wage sectors. Apparently,newin-migrantsarewillingto acceptunderemployment in low-wage traditional service sectors while waiting. Eventually,however,social discontent is likelyto erupt. Are labor markets in these citiesreallyin serious disequilibrium, and is the developingworld overurbanizedas a consequence? It is often alleged that the unusually high rates of developing-countryurbanizationin the recent past can be traced to the availabilityof cheap energy,technological diffusionthat favors modem urban sectors, heavy capital inflows,world trade liberalization,a drifttoward domestic price distortions that favor city output, and unusually rapid population growth. That these conditions have begun to show signs of changing suggests that the developingworld may have overurbanizedin the recent past. Urban growth may be expectedto decelerateover the next two decadesunder certain conditions: a recurrence of fuelscarcity,technologicalregression in modern sectors in the face of a productivity slowdownin industrial countries, diminished capital transfers because of economic austerity in industrial countries, a retreat toward protectionism in industrial countries, and a decreasein population growth. In short, the pessimists offer three sources for an incipient urban crisis in the developingworld:a savings constraint which will bridle the growth of capitalintensivecities; a labormarket disequilibriumwhichhas made overurbanizationa temporarybut seriousproblem of overshoot;and the disappearanceof unusual external conditionswhichwere favorableto urban growth in the past. Although the pessimistshave establisheda plausible case,no one to our knowledgehas offereda quantitative assessment of the importance of these forces over the past two decades.Without such an assessment,debate over future trends in developingcountries will be dominated by allegation and anecdotal evidence.It is our view that the debate can be better informedby the application of a general equilibrium model of development that includes some of the costs of urbanization, so that "natural limits" to urban growth can be evalu32 WhatDrivesCityGrowthin theDeveloping World? ated and the impact of changing economicand demographic conditions assessed(seeKelleyand Williamson 1984a, b). The Limits on City Growth The limits on urban growth are set, on the one hand, by urban costs that affect migration decisionsand, on the other, byrising urban investmentrequirementsthat compete with productivecapital accumulation. Urban land constraints raise rents, increase living costs in urban areas relative to rural areas, and thus inhibit migration into cities.To the extentthat rising rents and urban disamenitiesare causedby high densities,crowding, and other manifestationsof inelastic urban land supply,city rents reflectthe qualityof urban life as well as living costs. To evaluate the impact of urban land constraints on city rents, a generalequilibriummodelis neededwhich, at the minimum, admits housingservice activities and confronts equilibrium land use issues. Furthermore,a varietyofurban land requirementsmust be included-residential squatter settlements, factory sites, land use for public social overhead,and luxury housing sites. The housing and social overheadinvestment requirements of city growth must also be analyzed.Such "unproductive" urban investment requirements (first analyzedby Coaleand Hoover1958)compete directlywith "productive"capitalaccumulationand maycheckurban growth.If such overheadinvestmentis forgone,housing costs rise, the qualityof urban servicesfalls,and migration to cities is discouraged.Thus, in addition to the effectof the rise in the relativecost of livingin the city, the rise in unproductive investment requirements in cities maylowerthe rate ofproductivecapitalaccumulation and job creation and set a limit to urban growth. Modemurban sectors also tend to be relativelyintensive in skills, in intermediate inputs, and in such imported inputs as energy. To the extent that cities are energy-intensive,fuel scarcitycan limit urban growth.If capital and skills are complements and different labor skills are poor substitutes for each other, rapid rates of urban capital accumulation implyincreasing demands for skilled labor, which can constrain capacityexpansion, retard growth of employment,and limit urban growth. An effort to relax the labor constraint through skill accumulation is likelyto competewith productive urban capital accumulation and itselfconstitutea limit on urban growth. This chapter uses a computablegeneral equilibrium model to analyze past, present, and future growth of cities in the developingworld. Since the model has appearedelsewhere(Kelleyand Williamson1980,1982, 33 1984b),only a suggestiveoutline is presentedhere.The model is in the neoclassicalgeneral equilibriumtradition. Prices of outputs and inputs are completelyflexible, and most are endogenouslydetermined; firms are drivenby profit maximization;householdsare drivenby utility maximization;and evengovernment demanddecisions obeywell-definedrules from consumer demand theory. Mobilityof capital and labor is constrained to reflect the institutional realities of factor markets in developingcountries, but economic agents are motivatedto searchfor the optimalsectoraland spatialuse of resources. Themodel has eight sectors (table3-1). Tradablesand nontradables-the latter include various locationspecificservices-are distinguished.This is not the first multisectoral model to recognizenontradables,but it is the first spatialdevelopmentmodel to stress the importance of nontradablesas an influenceon spatialcost-oflivingdifferentials,on migration behavior,and thus on the rate of urban growth. The model is savings-driven,and the aggregatesavings pool is generatedendogenouslyfromthree sources: retained after-taxcorporate and enterprise profits, government savings, and household savings.This savings pool is allocated competitively and endogenouslyto three uses: investment in physical capital (productive investment), investment in human capital (training), and investment in housing (unproductiveinvestment). It should be emphasizedthat these three modesof accumulation are competitiveandare determinedendogenously;that is, investmentin skills (training)takesplace up to the point at which rates of return are equated to the economywiderate on physicalcapitalaccumulation. Physical capital goods are allocated across the three capital-usingsectors so as to minimize differentialsin after-tax rates of return. Dwellinginvestment utilizes householdsavingsonly up to the point at whichrates of return equal the economywiderate on physicalcapital accumulation. Of course, there are institutional and technologicalfeatureswhich seriouslyrestrict the ability of the economy to equate rates of return at the margin.Anyof the three dwellingmarkets (rural, urban squatter settlements,and formalurban housing) maybe starved for funds, since the absenceof an intersectoral mortgage market may leave housing investment requirements in excessdemand.The immobilityof sectorspecificcapitalstocksmakesit likelythat current investment allocations are insufficient to equalize sectoral rates of return. Indeed,the larger are housing requirements, the smaller is the residual pool availablefor physicalcapital accumulation and the more likely it is that current investment allocations are insufficientto equalize sectoral rates of return. Furthermore, firms' demandsfor skillsmayremain unsatisfiedifthe stockof Table 3-1. Sector Characteristicsof the Kelley-WilliamsonModel c,, Determination of market price Location U.N.ISIC counterpart Manufacturingand mining (M) Urban Manufacturing,mining Exogenous Modemcapitalintensive services (KS) Urban Endogenous Informalurban services (US) Low-quality(squatter) urban housing services(H, US) High-qualityurban housing services (H, KS) Agriculture(A) Urban Electricity,water, and gas, banking, public administration,trade, commerce, construction Personal services,some trade and commerce Dwellings(rent and imputed ownership) Informalrural services (RS) Rural housing services (H, RS) Rural Sector Urban Urban Dwellings(rent and imputed ownership) Rural Agriculture, livestock, forestry, fishing, hunting Personal services,some trade and commerce Dwellings(rent and imputed ownership) Rural (1980,1982,1984b). Sources: Kelleyand Williamson Tradability characteristics Primary Productioninputs Intermediate Production fimction form Traded intemationally and interregionally Traded interregionally Capital, skills, labor NestedCES, constant Imported raw matereturns rials and fuels,A,KS Capital, skills, labor Imported raw materials and fuels,A,M Nested CES, constant returns Endogenous Not traded Labor None Endogenous, owner-occupier shadowprice Endogenous, owner-occupier shadowprice Exogenous Not traded Dwellings,land None Cobb-Douglasdiminishing returns Cobb-Douglasconstant returns Not traded Dwellings,land None Traded intemationally and interregionally Not traded Capital, land, labor Labor Imported raw materials and fuels,M, KS None Not traded Dwellings None Endogenous Endogenous, owner-occupier shadowprice Cobb-Douglasconstant retums Cobb-Douglasconstant retums Cobb-Douglasdiminishing returns Leontieff World? WhatDrivesCity Growthin theDeveloping potential trainablesis insufficientto meet desiredlevels of investment in training. In short, capital market disequilibriummaywell be a chronicattribute of the economy. Finally,some exogenousvariablesthat help drive the alleged arever economyover time inlueced city ity lleed tto have hae influenced econmy imeare growth.Thesevariablesare the nominalvalueof foreign capitaland aid (F) availableeachyear to helpfinancethe developmenteffort and forestall balance of payments problems; the total unskilled labor force (L), which is determined by earlier demographicevents; the sectoral rates of change in total factor productivity,whichfavor modern sectors and are labor saving;prices of imported raw materials and fuels (Pz), which are influencedby actions of OPEC and by other world market conditions; and the terms of trade betweenprimaryexportables(PA) and manufacturedimportables(PM),which are twisted Political economyof by domesticprice ipolante protectionist or liberalizationwinds in the industrial nations. nations. permit generalizationabouturbanizationinthe To permit generalizationabout urbanization in the developingworld, the representativedevelopingeconomy (RDE) has been employedas the data base on which the model is estimated and validated.The RDE is a fictional economythat embodiesthe experienceof developing economieson three continents since 1960.Three criteria were used to select the RDEgroup:availabilityof data beginningin the early 1960s,low per capitaincome but somesuccessfulgrowth,and closeconformityto the model's most important assumptions.(The last-named criterion impliedthe rejectionof economieswhichhave been heavilydependenton foreign capitaland on minital whinbeeralhexports suchpasnuel) T fore eondoms eral exports such as fuel.) The forty economieswhich met the criteria' seem to exhibit the same averageattnbutes as the far larger group analyzedby Chenery and Syrquin (1975). The RdE group contains eleven of the world'stwelve largest developingeconomiesand covers more than 80 percent of the populationof the develop- 35 MacroeconomicIndicators AggregateGrowth.As set out in table 3-2, the model generatesan annual averagegrowthrate of grossdomestic product (GDP)in constant prices of 6.26 percent for GDPper workeraverages rateoftrend andthe 1960-73, is inacceleration 3.58 percent. A growth significant an acceleratiof 5s92 A gnifrom dicated; percent in 1960-65 to 6.60 percent in 1968-73. That the at to 6.60 cento prentins these predictions conform fairly closely to the actual pre-oPEchistory of the RDEgroup helps to establishthe model's plausibilityat the most aggregatelevel. Unbalanced Growth and Industrialization. The model alsoreplicatesthe RDEhistory of industrialization dustheliaton in modeclselicateseen quite closely,as can be seen in table 3-3. The M-goods sector underwent relatively rapid growth, from 15.9 percent of GDPat factor cost (current prices) in 1960to 20.8 in 1973; the model generates almost identical trends. The service sector underwent a more modest rise, from 47.5 to 50.6 percent of GDPat factor cost, and the modelcaptures these trends too. Therapid declinein the relative importance of agriculture-from 36.6 to 28.6 percent-is also fithfully replicatedin the simulation. It is satisfyingthat the model so closelyreplicates that the unbalanced rowtes tiontitative the quantitative record of the unbalanced growth of sectoral output. InvestmentAllocatsonand Sourcesof inance. Gross domesticinvestment as a share in GDP increasedmarkedly between 1960and 1973,from 15.59to 19.46percent (Kelleyand Williamson1984b,table 3.10, p. 89). Total investmentshares, includinginvestment in training, also drift upwardin the model,a predictionwhich conventional national accounts cannot document. Althoughthe aggregateinvestmentshare increasedover the period, the model suggests that the distributionof investment was remarkablystable. Investment allocation by sector and type is poorly documentedfor the period, but the model predicts that the dispre-OPEC tribution of investment by sector and type must have been quite stable over the thirteen years. Thesources of Predicting the Past Table 3-2. Annual Average GrowthRate, 1960-73 Of the about one hundred endogenous variables generated by the model, three-urbanization, city growth, and rural-urban migration-form (percent) GDP this chapter. The illustrations below show how the model replicatespast trends forthese and other selected variables, both to throw light on past trends and to validate the use of the model for making predictions. Much of the initial discussionfocuseson 1960-73, but the late 1970s are also discussed. GDPper worker prices) (constantprices) (constant the core of Model Actual Model Actual 1960-65 5.92 1968-73 6.60 1960-73 6.26 5.78 6.12 5.80 3.19 3.98 3.58 3.24 3.58 3.26 Period Source: Kelleyand Williamson(1984b),table 3.5, p. 84. 36 AllenC. KelleyandJeffreyG. Williamson Table 3-3. Output Mix, 1960-73 (percent of CDP) 1960 1970 1973 Model Actual Model Actual Model Actual Agriculture(A) Manufacturingand mining (M) 36.6 15.9 36.6 15.9 30.4 19.3 30.9 19.2 28.2 20.9 28.6 20.8 Moderncapital-intensive services(KS) Informalurbanservices(US) Informalruralservices(RS) Housing,all sectors(H) 29.6 6.2 3.2 8.5 29.6 6.2 3.2 8.5 30.4 6.9 3.1 9.9 n.a. n.a. n.a. n.a. 30.8 7.2 2.8 10.1 n.a. n.a. n.a. n.a. Allservicescombined (KS + US + RS + H) 47.5 47.5 50.3 49.9 50.9 50.6 Sector n.a. Notavailable. Source: Kelleyand Williamson(1984b),table 3.7, p. 86. saving,however,did not showthe same stability(Kelley and Williamson1984b,table 3.10, p. 89).2The share of gross domestic investment financed by public saving rose to 34 percent. The model predictsa comparablerise to 33.7 percent, with both shares rising by about 5 percentagepoints. The fallin the privateshare of finance was attributable not so much to lagginghouseholdsaving as to a declinein the share of gross corporatesaving in gross domesticinvestment,from 31.7to 26.6percent. UrbanIndicators Migration, Urbanization, and City Growth. Table 3-4 documents four key aspectsof urban development: the share of the population that is urban, city growth rates, net rural out-migration rates, and net urban inmigration rates. The rise in urban shares providessome evidenceof acceleratingrates of urbanizationand conforms to the pre-inflection-pointphase along logistic urbanization curvesthat is commonlyfound in develop- IncomelInequalityand WagePatterns. Sizedistributions forthe model and for an averageof eighteen ofthe Kelleyand aredaa givenin RoE forwhich dataexist inKeley ndWilliamillamRDE eistaregive or hic son (1984b, table 3.12, p. 91). In spite of well-known limitations,the top 5 percent and the bottom 20 percent shares of national income exhibitsome striking trends. Contraryto conventionalwisdom,an unambiguousrise in inequalityis not confirmed.The bottom 20 percent sufferedan erosion in income shares during the period, but the top 5 percent underwentan evenmore dramatic erosion. Clearly, the middle classes flourished at the expense of both the very rich and the very poor. Those are exactlythe conditions under which Lorenz curves ing-countrytime series (Preston 1979;Ledent 1980).In the first fiveyearsof the simulation (1960-65)urbanizain the levels rise(1968-73) by 3.18 percentage tion by 5.38while percentage last five years they risepoints, cont by 5.38 las. Similars city growthes rise intersect. Inequality inferences are then impossible unless value weights are imposed on social classes. The model exhibits the same behavior: a 3.1 percent fall in the share in national income of the top 5 percent is predicted, compared with the RDEhistory of a fall of 2.6 percent. Similarly, while the bottom 20 percent found its share declining by 0.3 percent, the model predicts a fall of 0.2 percent. The group in the 60-90 percent range increased its share by 3.7 percent, which implies that the source of the inequality lies with increased inequality of earnings. Those in the 60-90 percent range in the model are urban skilled and unskilled in the formal sectors. In short, the model generates wage inequality and skill scarcity. Table3-4. Migration, Urbanization, and City Growth, 1960-73, ModelPredictions Year 1960 1961 1962 1963 1964 1965 1966 1967 1969 1970 1971 1972 1973 -Not Percent urban City growth rate 32.60 33.55 34.30 34.73 35.25 35.78 36.49 37.23 38.95 39.93 40.96 42.15 43.45 5.56 4.87 3.85 4.13 4.11 4.60 4.61 4.91 5.15 5.22 5.56 5.72 - Net rural out-migration rate - 1.41 1.13 0.65 0.81 0.82 1.10 1.16 1.425 1.60 1.71 2.02 2.21 Net urban in-migration rate - 2.91 2.24 1.25 1.51 1.50 1.98 2.01 2.3217 2.51 2.58 2.91 3.07 applicable. Source: Kelley and Williamson (1984b), table 3.13, p. 93. WhatDrivesCityGrowthin theDeveloping World? 37 forming to the trends reported in the World Tables 1976 (World Bank 1976, table 2, "Social Indicators") between 1960 and 1970. Rural-urban migration rates also rise. Table 3-5 presents model predictions and actual experience. City growth rates in the RDE group were 4.60 percent a year during the 1960s; the model predicts a rate of 4.67 percent. The model predicts a rural outmigration rate of about 1.1 percent a year, and the historical rate ranged between 1 and 1.2 percent; the predicted urban in-migration rate is 2.1 percent a year, and the historical rate ranged between 1.8 and 2.3 percent. Finally, 45 percent of the increase in city population is accounted for by in-migration in the model; this figure falls between Preston's (1979) estimate of 39 percent (based on twenty-nine developing countries) and Keyfitz's regional estimate of 49 percent (1980, p. 151). It is also close to the 42 percent figure for developing countries reported by Linn for 1970-75 (1979, p. 73). Table 3-6. Urban Land Use, Density, and Land Scarcity, Model Predictions, 1960, 1970, and 1973 Variable 1960 1970 1973 Urban Land Use, Density, and Land Scarcity. Table 3.6 reportsofindicators urban lad ue an. 3-6 shareportsindicato of urbandevot land qustera scity struction in the long run can inflate the cost of city life, as summarized in table 3-7. Excess housing demand arises because capital market segmentation excludes rises sharply (Mohan 1979; Beier and others 1975). Competition for land use generates sharply rising land scarcity; the shadow site rent on urban land almost doubles between 1960 and 1970 and in 1973 reaches a level about 2.3 times that of 1960. Urban land values (deflated by the general price level) surge; the index rises from a base of 100 in 1960 to 195.2 in 1970 and 239 7 in from aTbaseofe100 in1960nto195.2aind1970uan 239.7 in 1973. These tn i urbantlan uly a raid mtersectoral (mortgage) loans forhousing Investment, and each socioeconomic class must rely on its own internally generated saving to meet housing investment. Table 3-7 reports that the saving constraint is never binding for rural households or for skilled workers and higher-income households, but for squatter settlements-the faster growing sector-the saving constraint is bindingvery early in the period and thus excess short-run demand for new low-quality dwelling units is which were singled out at the U.N. Habitat Conference in 1976 (United Nations 1976). Urban densities rise everywhere in the model, but they rise most dramatically in "luxury" housing, where the relative scarcity of land compared with structures rises most sharply, encouraging land saving and greater density. generated. Excess demand and mcreasmg urban land scarcity ensure a rapid upward drift in (shadow) rents in The share of urban land devotedto squattersettlements annual growth of 7 percent-exactly the sharp rises Share of urban land in squatter - settlements (percent) ,rban land density(persons . area) High-qualityhousing areas Squatter settlements Shadowsite rent on urban land (1960 = 100) Shadowprice on urban land (1960 = 100) (percent) _________________________________________ Variable Annual city growth (compounded) Total increase in urban share of population Annual increase in urban share of population Net in-migrant share of increase in urban population Net in-migration rate Net out-migration rate Predicted Actual 4.67 4.60 7.33 5.30 0.73 45.0 0.53 39.3-49.0 2.09 1.81-2.26 1.10 0.97-1.21 Source: Kelley and Williamson (1984b), table 3.13, p. 93. 52.2 53.9 100.0 152.0 172.7 100.0 121.4 141.7 100.0 183.3 233.3 100.0 195.2 239.7 Source: Kelley and Williamson (1984b), table 3.14, p. 95. Housing Scarcity and Gost-of-Living Differentials. In addition to land scarcity, excess demand for housing units in the short run and rising costs of housing con- itretrl(otae gnrtd on xesdmn o osn n netet nraigubnln Table 3-7. Housing Scarcity and Cost-of-Living Differentials, Model Predictions, 1960, 1970, and 1973 Variable Table 3-5. Predicted and Actual Migration, Urbanization, and City Growth, Averages, 1960-70 43.0 1960 1970 1973 Excesshousing investment Urbanhigh-qualityhousing -3.77 -2.55 -2.67 Urban squatter settlements Rural housing -0.02 -0.29 0.37 -0.58 0.28 -0.88 1.00 1.00 1.00 1.00 1.35 1.46 1.00 Housing rent index Urban high-quality housing Urban squatter settlements Rural housing Urban squatter . rural Cost-of-living index Urban rural 1.72 1.90 1.38 1.25 1.45 1.31 1.09 1.12 a. [Desired housing investment demand - household saving] desired housing investment demand. Source: Kelley and Williamson (1984b), table 3.15, p. 96.- 38 Allen C. Kelleyand JeffreyG. Williamson urban squatter settlements, and the cost-of-livingdifferential rises as a result. Understanding City Growth: Some Major Influences Which exogenousvariableshavehad the greatest impact on city growth in developingcountries?Whichare least likely to account for future growth? Answersto these questions can be dividedinto three parts: the size of the past and future changes in the exogenousvariable thought to influenceendogenous rates of city growth; the short-run comparativestatic impact of that exogenous variable;and the long-run forcesset in motion by the short-run comparativestatic impact. This section focuseson short-run comparativestatic elasticitiesand exploresthe impactof some keymacroeconomicevents on urban growth: unbalanced productivity advance, world market conditions and price policy, accumulation, demographicchange, and land scarcity. Each of these short-run elasticitiesreflects the full generalequilibrium impactof the exogenousvariablein question, basedon the initial conditionsin 1970.Labor marketsadjust through migration,and urban land markets seek an optimal land use solution, but capital markets are severelyconstrained in the short-run analysis: old capital cannot migrate, and new capital goods and newlytrained skilledworkers are not addedto capacity. Investmentresponsesare also ignored in the short-run analysis: recent historical experiencewith sectoral investment allocation is assumedto guide entrepreneurs who are slow to adjust to the new, unexpected,and shock-distortedrates of retum. UnbalancedProductivity Advance If output demandis relativelyprice inelastic,sectoral total factor productivitygrowth (TFPG) for a sector tends to generatea relativepricedeclinerather than an elastic supplyresponse. Thus,the rise in the marginal physical productivityof factorsused in a technologicallydynamic sector will be partially offsetby the decline in price, so that marginal value products rise by less, and shifts of resources, including labor, to the technologicallydynamic sector are minimized.If, on average,urban sectors tend to haverelativelyhigh rates of TFPG, and ifthe demand for urban output is price elastic, final demand shifts toward the dynamic urban sectors, the derived demand for urban employmentis augmented, and the city grows. The higher are price elasticitiesof demand for urban output, the greater is the city growthattributable to unbalancedproductivityadvancethat favorsthe modem sectors. In table 3-8 disembodiedTFPG (the Ajs, in rates of change)in agriculture and manufacturingexerta much greater impact on urbanization than do productivity improvementsin the servicesectors. The pricevariables PA and Pmare exogenouslydetermined and are fixedby invokingthe small-countrycase of infiniteprice elasticity. Servicesare nontradableswith price elasticitiesof demand sufficientlylow that the productivity-induced declines in servicesector prices (PKs,PUS,and PRS,in response to AKS, Aus, and ARS, respectively)implystable marginalvalue productsand trivial employmentand city growth effects. Although productivityadvance in manufacturing is an important potential determinantof urbanization, rapid productivityadvancein agriculture tends to forestallout-migrationto the city.This result is in contrast to the closeddual economymodel in which productivityadvancein agriculture meets with demand absorption problems,decliningfarmterms of trade,and thus a labor surplus which out-migrates to glut urban labor markets. Unbalancedrates ofTFPG that favormanufacturingare likely to have been a key determinant of rapid inmigrationand city growth since the late 1950s.Not only are the comparativestatic elasticitiesin table3-8 consistent with that position, but limited evidencesuggests that annual rates of TFPG in manufacturing have been relatively high in most successful developing economies. Although technologicaladvancetends to be lower in the service sectors, especiallyin the informal service sectors, table 3-8 suggests that rapid TFPG in those sectors has had little impacton urbanizationexperiencefor the demand elasticityreasons already offered.If rapid TFPG matters little to urbanization even in the modem capital-intensiveand skill-intensiveKS sector, lagging productivityadvancein the service sectors would also matter little. It is believedthat urban social overheadis crucialto the profitabilityandviabilityof urban firms.In our model, KSactivitiessuch as transport, communications, and electricityhavethat role. Table3-8 confirms that productivity advance augments KS services supplied in short-run equilibrium (QKs), but because almost all of these productivitygains are passed on to users elsewherein the economy (PKSdeclines),employment in KS itself changes little. Final-demandcustomers of KSservices,whotend to be the urban rich, gain.A major user of KS services as intermediate inputs is manufacturing, and employment rises there. The net effecton urbanization is, however, indirect and small. Short-RunConstraintson City Growth Productivityadvancesthat favormodern sectors foster urbanization, but in the short run the city growth World? WhatDrivesCityGrowthin theDeveloping 39 Table3-8. ComparativeStatic Impacts of UnbalancedProductivityAdvance on City Growth in DevelopingCountries (1970 Elasticities) Endogenous variable City growth attributes Percent urban City growth rate In-migration rate Squatter house rents Cost-of-livingdifferential (urban + rural) Tradable commodities Nontradableservices AM AA AKS 0.50 10.29 20.57 3.57 - 0.26 -5.33 -10.65 -0.73 0.03 -0.01 0.68 -0.26 1.36 -0.52 0.40 0 1.49 -0.80 0.12 -0.11 AUs ARS - 0.03 - 0.67 -1.33 -0.14 0.01 Selectedeconomywideattributes PKS PUs 0.82 0.22 PRS 1.03 0.02 0.24 1.17 QM 2.34 QKS 0.02 0.23 -0.34 -0.11 1.36 -0.18 0.24 - 0.37 -0.11 Qus QA QRS LM LKS Lus LA LRS -0.57 0.17 0 1.31 -0.91 0.03 0.15 -1.09 0.09 -0.01 0 0 -1.03 0.24 0.08 0.99 0.02 0.07 0.01 0 0.75 -0.01 0 0.07 -0.09 0 0.60 -0.84 0.10 0.18 0.15 -0.07 0.11 0 0.02 - 0.26 0.15 -0.02 0.01 -0.09 0 -0.01 0.08 0.32 0.34 -0.01 -0.01 0 - 0.41 Source:KelleyandWilliamson (1984b),table4.1,p. 103. Note: Variablesare definedas follows:AM, total factorproductivitygrowthin the manufacturingsector;AA,total factorproductivitygrowthin the agriculturalsector;AKs,total factorproductivitygrowth in the modern servicessector;AUS,total factorproductivitygrowthin the informalurban servicessector;ARs,total factorproductivitygrowthin the informalruralservicessector;PKS,priceper unit ofmodemservices;Pus,priceper unit of informalurban services;PRS,priceper unit of informalruralservices;QM,output in the manufacturingsector;QKS,output in the modernservices sector;Qus,output in the informalurban servicessector;QA,outputin the agriculturalsector;QRS,outputin the informalrural servicessector;LM, unskilledlabor in the manufacturingsector;LKS,unskilledlaborin the modem servicessector;Lus, unskilledlabor in the informalurban services sector; LA,unskilledlabor in the agricultural sector; LRS, unskilledlabor in the informalrural servicessector. responseis constrained, partlyby problemswith absorption of output, partly by short-run capacityconstraints and skill bottlenecks,and partly by a rising supplyprice of unskilled labor in the cities. Table 3-9 focuses on the rising supply price of urban labor. Urban job creation fosters in-migration,but with some limitation. Although land use shifts to squatter settlements to accommodaterising density, urban rents nevertheless rise steeplyin the face of the migrant influx.Since most new in-migrantsare unskilledand poor, rents in squatter settlements rise more sharply than do rents for high-qualityhousing. Squatter-settlementrents reflect excessdemandfor housingand sites; the rents for highquality housingmostly reflectincreasedland scarcityas the needs of the poor are partially accommodatedby shifting land use. The cost-of-livingadvantage of the rural area rises sharply as a result of increasedurban rents. Allthese factors raise the averageunskilledwage in the cities and tend to restrict city growthin the short run. Furthermore, job creation is constrainedby skill bottlenecks (the skilledwage rises) and capital scarcity (the return to capitalin manufacturingrises faraboveits return in other uses), which suggeststhat the long-run impact of unbalanced productivity advance on city growth is far greater than these short-run elasticities imply. Scarcitiesof Fuel and Imported Raw Materials Since urban-based manufacturing uses intensively fuels and raw materials (importableswhich we call Zgoods), any increase in the price of imported Z-goods penalizesmanufacturingdirectlyand other urban activities indirectlyand thus inhibits urban job creation and citygrowth. Eventhough the modeladmitsthe possibility of direct and indirect substitution away from the more expensiveimportedfuelsand raw materials, table 3-10 reports that in-migrationand city growth are still constrained because urban activities tend to be Zintensive.The elasticityofPz,however,is low compared 40 Allen C. Kelley and Jeffrey C. Williamson Table 3-9. Short-Run Constraintson the City Growth Response to UnbalancedProductivity Advance (1970 Elasticities) Endogenous variable AM AKS City growth attributes Citygrowthrate 10.29 0.68 Congestionindicators Percenturbanlandin squattersettlements 1.25 0.13 Squatter house rents 3.57 1.16 High-quality house rents Cost-of-living differential s (rural urban) 0.40 0.15 1.49 0.12 Factormarket disequilibriumindicators Averageurbanunskilledwage Ruralunskilledwage Urbanskilledwage Returnto capitalin M Returnto capitalin KS Returnto capitalin A 1.03 0.02 1.28 2.34 0.80 - 0.30 0.15 0.09 0.13 0.27 0.07 0.06 "unproductive" capital accumulation on employment demand,urban job creation,and city growth.Accumulation in the urban modem sectors fosters job creation, and an investmentpolicywhichfavorsmanufacturingat the expense of agriculture fosters urbanization. It is surprising,however,that accumulation of urban squatter housing (Hus)has the most potent short-run impact on urban job creation and city growth. This result occurs even though the impact multipliers excludethe employment effects of the formation of the housing stocks through investment (and investment activities in squatter construction are highly laborintensive).dwelling The relatively large urban employment effects associated with the accumulation of squatter housing are therefore all indirect: housing rents de- Table 3-10. Factors That Influence City Growth in DevelopingCountries (1970 Elasticities) Source:Kelleyand Williamson (1984b),table4.2,p. 105. Endogenous urbanization variable with the unbalanced productivity advance indicators (the Ajs) or with the other two exogenous prices reported in table 3-10.Atfirst glancethis maysuggestthat the sensitivityof urbanization to scarcity of fuels and Exogenousvariable Land and labor raw materials has been overstated in the literature. In L Accumulation KM view of the historical record since 1960,however, one must be cautious.Afterall, Pz soaredin the 1970safter its recorded stability during the 1960s. Thus, Pz may have been a dominant source of developing-country urbanization over the past two decadesin spite of the modest elasticitiesreported in table 3-10. (The issue is discussedagain below.) Percent CitygrowthIn-migration urban rate rate -0.03 0.04 - 0.69 0.88 -1.38 1.77 -0.57 6.38 12.75 0.09 1.82 3.63 0.02 0.40 -0.03 0.39 -0.13 -0.68 0.07 7.92 -2.75 -1.35 0.15 15.83 -5.50 PZ PM -0.04 -0.89 -1.77 PA - 0.32 -6.51 -13.01 RA Ru KKS KA HKS HuS HRS 0 0.81 Prices Price Policy and World Market Conditions Table3-10 presents the short-run impact multipliers for prices of agriculturaland manufacturedgoods,both 0.54 of which compete in world markets. These prices are Productivityadvance AM usuallyheavilydistorted by external and internal price policy. The table shows that city growth was far more AA AKS sensitive to PA and PM than to Pz. Any effort to under- Aus 0.50 - 0.26 0.03 - 0.01 stand the sources of past and future city growth must therefore carefullysort out these relative price conditions, including the impact of past liberalizationand future protectionist trends in the industrial countries ARS and the influence of price-distorting policy regimes in developing countries. developing countries, Accumulation, Capacity, and Job Creation Table 3-10 also summarizes the impacts of "productive" capital accumulation and population-sensitive 11.13 10.29 22.23 0.68 - 0.26 20.57 - 10.65 1.36 - 0.52 - 0.03 - 0.67 -1.33 0.23 6.96 -5.33 Other Skilledlaborforce (S) Foreigncapital(F) 13.90 0 - 0.03 - 0.06 Note: Variables, in additionto thosedefinedin table3-8, are as follows:RA,agriculturalland stock;Ru, urban landstock;L, total unskilledlaborforce;KM,physical (productive) capitalinthe manufacturingsector;KKS,physicalcapitalin the modemservicessector;KA, physicalcapitalin the agriculturalsector;HKs,high-quality urban housing; Hus, low-quality(squatter)urban housing;HRs, rural housing;Pz, priceper unit of importedrawmaterials;PM,priceper unit of manufactured goods;PA,priceperunit ofagricultural goods. Source: Kelleyand Williamson (1984b),table4.6, p. 111. WhatDrves City Growthin the DevelopingWorld? 41 crease with the augmentedsupplyof dwellingspace,the relative costof livingin the cities declines,in-migration is fostered, nominal wages of the unskilled are lowered by the temporary labor glut, and employmentexpands everywherein the city as a result, especiallyin manufacturing. In contrast to Coaleand Hoover's(1958)emphasis on the tension betweenunproductiveand productive capital accumulationin city growth,table 3-10suggests no conflict:of the sixalternativemodesof accumulation Table 3-11. The GrowthEnvironment, Pre-OPEC and Post-OPEC:Dynamic ParametersAssumed in the Sinulations listed, accumulation in HUS has the highest urban job Price of M-goods(PM) creationand city growtheffects.Anissuefor futurework is to assesswhether this conclusionholdsfor the longer run. Agricultural landstock(RA) Urbanlandstock(Ru) Totallaborforce(L *S (percent) Exogenous variable (dynamicparameter) Priceof importedrawmaterials(Pz) Averageannualgrowth Pre-OPEC Post-OPEC (1960-73) (1973-79) 0 5.2 -0.7 - 1.6 1.0 1.0 2.54 0.5 1.0 2.68 Source: Kelleyand Williamson(1984b),table 5.1, p. 126. Land and Labor Popular accounts of rapid urbanizationin developing countries emphasizethe roleof high populationgrowth. Table 3-10 contradicts this view, although how wrong the population account is dependson which aspect of urbanization and city growth is of interest. Lewis (1977) has stressed the capital intensity of cities, and the present modelconformswith that reality, since urban activities are, on average, far less laborintensive than are rural activities. The Rybczynski theorem in trade theory holds that an increasedendowment of any given factor of production should favorthe expansion of those sectors which use that factor most intensively. Thus, whatever its source, populationinduced labor force growthshould foster the expansion of rural activitiesand suppressurbanization.According to this analysis, population growth does not offer an explanationfor urbanization, and the negative impact multiplier in table 3-10 (percent urban, - 0.57)proves the point. For in-imigration and city growth, however, table 3-10 reports a more conventionalresult, since the impact multipliers are positive and quite large. (The next section elaborates on this issue.) What about land endowments?Conventionalwisdom has argued that scarcityof agriculturalland has tended to push labor into the cities. Although an extensionof the arable landstock wouldcertainlyincreasethe retention of labor in rural areas and thus retard urbanization, the size of the impact reported in table 3-10 is small. Changesin agriculturalland endowmentare simplynot an important part of the city growth tale. The OPEC Watershed and Recent Growth Trends The changing growth environment in the aftermath of the OPECprice shock has been significant.It has been manifestedmainly in relativeprices,whichare captured in the modelbyexogenoustrends in PA,PM,andPz (table 3-11). In relation to prices of primary exports from developing countries, the quality-adjusted price of manufactured goods declined at an annual rate of 0.7 percent up to 1973.Therate of declineacceleratedafter 1973 and averaged1.6 percent a year to 1979.In contrast, the price of imported raw materials (including fuels) rose by 5.2 percent a year after 1973 compared with PA;the same relativeprice exhibitedlong-run stability before 1973. Although these price trends are affectedby the base periodsselected, the averagingdevices applied,and the underlyingprice series,there can be no doubtabout the epochalcharacterof the post-OPEc price trends which developingcountries faced in the 1970s. Astable 3-11shows,the growth rate of the laborforce was higher after 1973,although the accelerationwas quite modest. Table3-11 also documents the assumed rates of farmlandgrowth,showinga declinewhich captures the apparent rapid exhaustion of possibilitiesfor augmenting extramarginal land. Clearly, there were other (perhapsless important) nonprice changesin the economic and demographic environment that surrounded the RDEgroup after 1973.For that matter, not all of the epochal price trends were related to OPEC. Nonetheless,we havelabeledthese two epochspre-oPEc and post-oPEc. Evaluatng the OPECWatershed The world economy has been undergoing painful adjustments to the price shocks associatedwith shortrun OPECpolicyand long-runscarcitiesof raw materials and fuels. Since as late as 1979the world economywas still digesting the impact of these disequilibrating shocks, it seems clear that a long-run general equilibrium model such as ours cannot be expectedto account 42 Allen C. Kelley and Jeffrey G. Williamson tions by the model in table 3-13 might suggest that the OPECprice shocks mattered little to subsequent urban performance in the late 1970s. The annual rate of city growth declines only modestly over the period as a whole (from 4.86 to 4.65 percent); the percent urban continues its rapid climb; and in-migration rates, although somewhat lower, remain high. Note, however, the unambiguous evidence of retardation in the Actual columns of table 3-12, in which the rates of in-migration and city growth lose their steam quite dramatically. More important, in table 3-13 compare the predicted actual postOPEc experience with the counterfactual 1973-79 experience that assumes pre-OPECenvironmental conditions: while the actual city growth rate for 1973-79 is 4.65 percent a year, the counterfactual rate would have been 6.04 percent. Furthermore, without the shocks of the late 1970s, the counterfactual rate of in-migration adequately for the short-run trends that developing countries have undergone since 1979. Nonetheless we can use the post-oPEc conditions to illustrate the model's sensitivity to such epochal shocks. Tables 3-12 and 3-13 summarize the city growth predictions. Table 3-13 offers a 1960-73 prediction, using the actual pre-OPECeconomic and demographic environment, that has already been compared with actual experience in previous sections; a 1973-79 prediction using the actual post-OPEc economic and demographic environment documented in table 3-11; and a counterfactual post-OPEC prediction, which simply allows the pre-OPECenvironmental conditions to continue beyond 1973. The counterfactual experiment makes it possible to assess what urbanization would have been like without the post-OPEC epochal shocks. Comparison of the pre-1973 and post-1973 predic- Table 3-12. Post-OPEC Urban Adjustnents, Model Predictions, 1973-79 Counterfactualenvironment Actual post-OPECenvironment Year Percent urban City growth Net urban in-migration rate Percent urban City growth Net urban in-migration rate 1973 43.45 5.72 3.07 43.45 5.72 3.07 44.78 5.75 3.10 1974 44.45 5.10 2.32 1975 1976 1977 45.22 46.26 47.05 4.48 5.03 4.52 1.72 2.26 1.76 46.25 47.80 49.46 5.92 6.03 6.14 3.27 3.38 3.47 1978 47.85 4.47 1.71 51.22 6.23 3.56 1979 48.58 4.29 1.53 53.03 6.16 3.49 Note: The counterfactualresults assumethat the 1960-73dynamicparameterspersist after 1973.Thenet urbanin-migrationrate is the ratio of annual in-migrationto the averageurban population in all previousyears. Source: Kelleyand Williamson(1984b),table 5.3, pp. 130-31. Table 3-13. Pre-OPEC and Post-OPEC Urban Adjustments, Model Predictions, Period Averages (percent) Basis for prediction Variable Annual city growth Total increase in share urban for period Annual increase in share urban Net in-migration share of urban population increase Net in-migration rate Net out-migration rate Actual pre-OPEC environment, 1960-73 Actual post-OPEC Counterfactual environment, environment, 1973-79 1973-79 4.86 10.85 0.83 4.65 5.13 0.86 6.04 9.58 1.60 47.72 2.35 1.37 41.34 1.83 1.60 57.50 3.30 3.13 Note: The 1973-79counterfactualresultsassumethat the 1960-73dynamicparameterspersistafter 1973.Thenet in-migrationrate is the ratio of annualin-migrationto the averageurban populationin allpreviousyears.Thenet out-migrationrate isthe ratio of annualrural out-migrationto the averagerural population in all previousyears. Source: Kelleyand Williamson(1984b),table 5.3, pp. 130-31. WhatDrives City Crowthin the DevelopingWorld? wouldhave risen to 3.30 percent rather than fallto 1.83 percent, as in fact happened. in City Growth It seems clear that exogenouseconomicand demographic conditions had a powerfulimpact on developing-country urbanizationduring the 1970s.Table3-14 reports an effort to isolate the most important factors. Nine counterfactualstimulationsare used. Each generates a history in the 1970s (1973-79), but the table presents only one of the model's predictions-the annual rate of city growth. Each counterfactual case should be compared with the actual 1973-79 performance reproduced in column 1 (which repeats table 3-12). The fuel abundance counterfactualin column 3 maintainsall of the exogenousconditionsthat underlie the actual performance in column 1 except*fuelprice behavior:while the oPEc-augmentedactual Pz was 5.2 percent a year between 1973and 1979,the counterfactual assumes that Pz = 0, as was indeedthe case up to 1973. Theurban slowdownhad little to dowith agricultural land expansionor labor force growth.Rather,it appears that prices were doing most of the work. Furthermore, fuel scarcity,in spiteof the attention it has received,was not nearly as important a source of slowdownin city growth as was the accelerated decline in the relative price of manufactures(lowerPM)This findingobviously supports the viewthat any future trend toward protectionism in industrial countries will play an important role in shaping city growth in developingcountries in the next two decades.Thesame mightbe said, of course, of the mix of internal policies which may twist the relativeprice of manufactures in the future. This position is reinforced by the counterfactual experiment under "stable world markets," in which the relative price of manufactures is held fixed during the 1970s. Under these more favorableprice conditionsfor manufacturingthe model predictsannual city growth rates of 6.49 percent, in contrast to the actual rate of only 4.65 percent. Although a sharp decline in the rate of population growth would certainlyhavediminishedthe rate of city growth, column 8 in table 3-14 suggests that this influencehas beengrosslyoverdrawnin the popularliterature. The counterfactualexploresthe impact of a spectacular reduction in population pressure from the actual RDcEaraeduction8iecnt popuartionrsuefo thee ctualic a. RDErate of 2.68 percent a year to the 0.9 percent which prevailed among industrial countries. Even under this enormous diminution in population growth, the rate of city growth would still have reached almost 4 percent a year for the period 1973-79. Rapid population growth 43 certainly has contributed to spectacular city growth rates, but the experiments suggest that it is not the central force that drives urbanization.Table 3-14 also suggests that a shift to foreigncapital austerity would not matter much to urbanization. Urbanization in developing countries is, however, sensitive to a productivityslowdown.Givena plausible retardation in the economywiderate of TFPGfrom 1.8to 1 percent a year, city growth rates declinesignificantly, and the impact seemsto show signs of cumulating over time. Conclusion This chapter has shownthe abilityof the Kelley-Williamson model to adequately replicate growth, accumulation, distribution, and city growth in developing countries up to the 1973watershed.On that basis it is concluded that the model can be used to analyze the sources of urban growth during the 1960s, the early 1970s,and the difficultperiod of structural adjustment since then and to analyzefuture trends in urban experience undervaryingworld market conditionsand domestic policy regimes. To summarize,rapid rates of populationgrowth are not-as a reading of the popular literature would suggest-the central influence that drives rapid urban growth in developingcountries. Capitaltransfersto developing countries have not played a significant part, and rural land scarcityhas had only a modest role. The most potent influenceson city growth appear to have been the rate and imbalance of sectoral productivity advances-technological eventswhich havefavoredthe urban modern sectors-and prices (although oPEcinduced fuel scarcityhas been less important than the relativepriceof manufactures).Thus,trade policyin the industrialcountries andprice policyin developingcountries are likelyto have the most important impacts on city growth in the next two decades. Notes 1. Algeria,Bangladesh, Brazil,Cameroon, Chile,Colombia, CostaRica,Coted'lvoire,Dominican Republic,Ecuador,Arab Republic of Egypt,ElSalvador, Ethiopia,TheGambia,Guatemala, Honduras, India, Indonesia, Kenya, Korea, Malaysia, Mexico, Morocco, Nicaragua, Nigeria,Pakistan,Panama,Paraguay,Peru, Philippines,Portugal,Sri Lanka,Swaziland,Syria, Taiwan,Thailand,Togo, Turkey,Uganda,and Yugoslavia. 2. The World Bank's World Tables normally report only total private savingsand do not separate householdsavings from firm (corporate)reinvestment.Althoughthe distinction Table 3-14. Sources of a Slowdown in City Growth, 1973-79 (percent) Othercounterfactuals,1973-79 Technological OPECwatershedcounterfactuals,1973-79 Actual Itemn 1973-79 (1) Fel abundance, Worldmarkets, Land expansion, Total pr*e-OPEC, pre-OPEC ~~~~~~~~~~pe-PE,pre-OPEC, peOE pr-PCppre-OPEC, reOE,*world environment Pz = 0 only PMonly RAonly (2) (3) (4) (5) Population pressure, pre-OPEC, Stable markets, L + S only (6) PM= 0 (7) No population pressure (developed slowdown (decreasein TFPGfrom country l.S to I rate) (8) percent) (9) Foreign capital austerity, F= 0 (10) Year 1973 1974 1975 1976 1977 1978 1979 Average 5.72 5.10 4.48 5.03 4.52 4.47 4.29 4.65 5.72 5.75 5.92 6.03 6.14 6.23 6.16 6.04 Exogenousvariablestaken to be: PZ 5.2 0 -0.7 PM -1.6 RA 0.5 1.0 2.48 2.54 L5+ L+S 5.72 5.35 4.91 5.28 5.13 5.05 4.83 5.09 5.72 5.59 5.67 5.90 5.91 5.96 5.79 5.80 5.72 5.09 4.51 4.95 4.47 4.36 4.27 4.61 5.72 5.06 4.50 4.96 4.48 4.36 4.28 4.60 5.72 5.95 6.46 6.51 6.64 6.63 5.76 6.49 0 -1.6 0.5 2.68 5.2 -0.7 0.5 2.68 5.2 -1.6 1.0 2.68 5.2 -1.6 0.5 2.54 5.2 0 0.5 2.68 1.8 1.8 1.8 F such that TFPC 1.8 1.8 F/GDP= 5.72 4.46 4.03 4.37 3.72 3.68 3.57 3.97 5.2 -1.6 0.5 0.9 5.72 5.10 4.27 4.60 4.22 3.93 3.82 4.32 5.72 5.21 5.66 4.37 4.33 4.21 4.24 4.67 5.2 -1.6 0.5 2.68 5.2 -1.6 0.5 2.68 1.0 1.8 3 percent 1.8 1.8 Note: Variablesare defined as follows:Pz, fuel and raw materials prices;AM,domestic price of manufactures;RA, agricultural land stock; L capital inflow;TFPc, economywideproductivitygrowth. Sources: Kelleyand Williamson(1984a),table 5, p. 435; (1984b),table 5.4, p. 133. 1.8 population(or labor force);F, foreign WhatDrives City Growthin the DevelopingWorld? maybe fuzzyin the economiesbeinganalyzed,the twosources of savingsare quite distinct in the modeland are thus reported separately.Furthermore,what the modelidentifiesas training investmentis embeddedin privateand governmentconsumption in the RDE national accounts. Bibliography Becker,CharlesM.,EdwinS. Mills,and JeffreyC. Williamson. 1986."ModelingIndian Migrationand City Growth,19602000." Economic Developmentand Cultural Changevol. 35, no. 1 (October),pp. 1-33. Beier, George,AnthonyChurchill, MichaelCohen, and Bertrand M. Renaud. 1975. The TaskAhead for the Cities of DevelopingCountries.WorldBankStaffWorkingPaper209. Washington,D.C.Alsoin WorldDevelopment,vol. 4, no. 5 (May1976),pp. 363-409. Chenery, Hollis, and Moshe Syrquin. 1975. Patternsof Development, 1950-1970.London:OxfordUniversityPress. Coale,A.J., and E. M. 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