A review of Endangered City: The Politics of Security and Risk in Bogotá, Austin Zeiderman, Duke University Press, 2016.
When Austin Zeiderman arrived in Bogotá in 2006 to conduct his fieldwork in anthropology, he didn’t know he was in for many surprises. The mismatch between the preconceived notions he had about Colombia’s capital and what he experienced on the ground couldn’t have been greater. People had warned him about the place: Bogotá was perceived as a city fraught with crime and corruption, where danger loomed at every corner. Not so long ago, Bogotá’s homicide rate was one of the highest in the world and assassinations, kidnappings, and bombings were almost routine. Histories of violence often produce enduring cultures of fear that are difficult to dispel: people develop strategies to avoid danger and cope with risk. For individuals as for collectives, the trauma of violence persists long after the traumatic event has faded into the past. People told the young anthropologist that he definitely shouldn’t venture in the slums that occupy the hillsides of Bogotá’s southern periphery. It is therefore with some apprehension that Austin Zeiderman joined la Caja, a municipal agency located in this danger zone, where he was to spend twenty months doing participatory observation. His first surprise was that danger and criminality were much talked about and feared, but he never experienced it firsthand: “not once during my time in these parts of Bogotá was I harassed, mugged, or assaulted.” Indeed, he felt almost more secure in the hillside barrios of Bogotá than in his native place of Philadelphia, where he had learnt to navigate the city with precaution so as to avoid potential threats. There had been a dramatic decline in violent crime in Bogotá, and the city was now safer than it had been for half a century. Instead of criminals, petty thieves, and corrupt officials, he met with law-abiding citizens, dedicated social workers, and peaceful communities.
Entering the danger zone
The second surprise was a conceptual one. Austin Zeiderman had retained from his graduate training in anthropology and urban ecology a heavy theoretical baggage and a commitment to apply critical thinking to his urban terrain. More specifically, his views were shaped by two strands of critical theory: urban political economy, heavily influenced by Marx and his twentieth-century epigones such as Henri Lefebvre and David Harvey, and the more recent approaches of neoliberal governmentality that build on the intuitions of the late Michel Foucault. For the first line of social critique, urban planning is a way to manage the contradictions of late capitalism. Displacement and expulsion of informal tenants are a case of “accumulation by dispossession,” a way by which the capitalist state exerts its monopoly of violence in order to “build the new urban world on the wreckage of the old.” The second paradigm associates “neoliberalism” with the deployment of market-based logics, the valorization of private enterprise, the reform of governmental institutions, the retrenchment of the public sector, and the formation of responsible, self-governing subjects. The author’s plan was therefore to investigate “neoliberal urbanism” at work, and to document the acts of resistance, adaptation, and self-making of the subaltern subjects who are hailed by the constitutive power of the neoliberal state. The fact that the World Bank, the arch-villain of antiglobalization protesters, had extended loans to the city of Bogotá to support the policy of relocation and urban renewal, only reinforced him in his critical orientation.
He was therefore surprised to discover that many individual households were happy to be relocated: indeed, some of them petitioned the municipality to be included in the relocation program. Eviction was not feared and resisted: it was seen as an opportunity to escape from risky environments and relocate to healthier, more secure suburbs. In fact, a hallmark of the resettlement program was its insistence that the decision to relocate was voluntary. Protecting the population from natural and human hazards was not a projection by the rich and the powerful to discipline the lives of the poor: it was based on the recognition of the sacred value of life, and corresponded to a major aspiration of the poorest, who were the first victims of insecurity and risk. The sprawling, self-built settlements of the urban periphery, commonly perceived as posing a threat to political stability and social order, turned out to have the greatest concentration of families living under threat. In other words, risky populations turned out to be the most exposed to risk. Another surprise was to to discover the political orientation of the social workers in charge of the eviction program. They were progressive individuals, who defined themselves half-jokingly as “half-communist” or “communist-and-a-half”, and who were deeply convinced of the positive effects that the relocation program would have on the lives of the poor. Rather than securing the city as a whole by evicting residents and demolishing buildings, their primary objective was to protect the lives of vulnerable populations living in the urban periphery. These social workers were in line with the political priorities of the municipality, which was run by left-of-center mayors who had attracted much appraisal for their reforms. Neoliberalism, it seems, could be used for progressive purposes.
The legacy of Antanas Mockus and Enrique Peñalosa
The young researcher was in a quandary. Should he extoll the virtues of the municipal government that had led over Bogotá’s urban renaissance, or even praise the leadership of the right-wing president Álvaro Uribe who launched successful campaigns against the FARC, Colombia’s main guerrilla movement? The success story of Bogotá had already been told: according to the international media and local pundits, it was the story of two charismatic mayors who, with unorthodox methods, in less than ten years turned one of the world’s most dangerous, violent, and corrupt capitals into a peaceful model city populated by caring citizens. In this book, Austin Zeiderman remains uncommitted towards the legacy of Antanas Mockus and Enrique Peñalosa, as well as their two left-leaning successors at Bogotá’s city hall. He notes that their choice of options remained limited and constrained by the national security landscape: any attempt at fundamentally challenging the status quo would have been countered by paramilitary forces known for persecuting activists or leaders with even vaguely radical agendas. His research site, an urban resettlement agency, was used by progressive mayors in order to distribute patronage and build a political constituency among the urban poor. As for Uribe’s two terms at the presidency, Austin Zeiderman notes that they were characterized by continued internal displacement, violence in rural regions, human rights violations, increased poverty and inequality, and collusion with drug traffickers. The author’s commitment to a progressive political agenda and to critical theory remained untainted: he was not ready for a conversion to neoliberalism. Besides, his academic focus was on social theory and anthropological fieldwork, not political science or media analysis.
This is when, combining these different thoughts and experiences, the young author had his epiphany: he would study “the government of risk and the politics of security in contemporary cities.” The topic was empirically relevant and theoretically adequate. The relocation program in which he worked was dedicated to protecting the lives of the poor and vulnerable populations from environmental hazards, such as floods, landslides, and earthquakes. Risk management had been accepted across the political spectrum as a legitimate way to govern the city and to allocate resources to people in need of support. “Life at risk” had become a category of entitlement through which the urban poor could claim assistance, protection, and care. By interviewing social workers and their benefactors, and by analyzing the techniques used to map risk and relocate people, he could make sense of these new forms of governmentality without falling into hagiography or empty critique. Theoretically, the concept of risk opened a rich space of associated notions and constructions that have been developed to characterize our modern condition. Of particular relevance to him was the notion of biopolitics developed by Michel Foucault and his epigones and defined as the way the state extends its power over bodies and populations by exerting its right to make live and to let die. Foucault’s schema also associates risk with the rise of the modern society by locating it at the center of the new art of government that emerges in the late eighteenth century. Austin Zeiderman proposes the concept of endangerment, and of the endangered city, to describe a world in which the unlimited improvement of urban life, even its sustained reproduction, are no longer taken for granted. The endangered city is not a city where life faces immediate danger: it is a place where citizens live under the shadow of insecurity and risk, even if these threats never actually materialize.
The agony of Omayra Sánchez
If there was a specific trauma that led government authorities and populations to turn their attention to the management of risk, it was to be found in the catastrophic events that took place in 1985. On November 13, a volcanic eruption set off massive mudslides and buried the town of Armero, killing over twenty-five thousand people. A young girl, Omayra Sánchez, became the symbol of this suffering for millions of TV viewers, as rescuers failed to free her from the mud and debris that had trapped her body. Just one week before, members of the M-19 guerrilla group had attacked the Palace of Justice in central Bogotá and had taken the judges and the public as hostages. The siege of the building by the army and the ensuing battle left more than one hundred people dead, including the Chief Justice and dozens of hostages. For the press, these two tragedies were “apocalypse foretold”: they could easily have been prevented, if only the state had lived up to its responsibility to protect the life of its citizens. Critics claimed that in both cases the government had advance warning of the impending tragedy and had failed to prevent known threat from materializing. As a consequence, governmental problems and their proposed solutions began to be increasingly understood within a security framework oriented toward the protection of life from a range of future threats. Prediction, prevention, and preparedness were the solution proposed, and the imperative to protect life by managing risks became the ultimate end of government. Of course, the power of the state to “make live and to let die” (to use Michel Foucault’s expression) is applied unevenly: in the Colombian context of 1985, “the figure of Omayra creates a boundary that differentiates those whose lives matter from those whose lives do not—the outlaws, insurgents, subversives, or terrorists who are dealt with as enemies of the state.” Austin Zeiderman also notes that the responsibility to protect lives imposed itself at the expense of other rationalities and state goals, such as development, democracy, and welfare.
Nothing characterizes more this shift in urban governmentality than the evolving missions of the Caja de la Vivienda Popular, the branch of Bogotá’s municipal government in which Austin Zeiderman did his fieldwork. The Caja was originally created in the 1940s to provide public housing for the poor and for public employees. Its role shifted from hygiene and poverty alleviation to slum eradication and urban renewal in the 1980s and then, starting 1996, to the resettlement of populations living in zones of high risk. Populations deemed vulnerable to environmental hazards, such as landslides and floods, were entitled to state subsidies and could benefit from a relocation program that allowed them to resettle in more secure environments. Rather than organizing housing policy in terms of social class, political citizenship, or economic necessity, vulnerability became the primary criterion that determined one’s eligibility to receive state benefits. In other words, “life at risk” came to displace “worker,” “citizen,” and “poor” as a new political category of political recognition and entitlement. The Colombian constitution’s article proclaiming the “right to life” (derecho a la vida) came to supersede the other article recognizing that all Colombians have the right to “decent housing” (derecho a una vivienda digna). Various disciplines, ranging from geology, hydrology and meteorology to sociology and new public management, were mobilized to establish risk maps and contingency plans delimitating zones of high risk (zonas de alto riesgo) whose inhabitants could claim eligibility to the relocation program. Similar approaches of urban mapping and risk calculation were applied to prevent violent crime and terrorism. In addition, sensibilización programs were conducted to educate the poor to behave in relation to future threats and to instill a collective ethos of risk management.
“Lagos is not catching up with us. Rather, we may be catching up with Lagos.”
In the last decade, Bogotá has become recognized internationally as a “model city” for its achievements in good urban governance across realms as diverse as education, security, transportation, civic order, and public space. In the context of climate change and increased environmental hazards, disaster risk management has been especially singled out and given as an example for other cities to emulate. For Austin Zeiderman, the endangered city of Bogotá provides another kind of model: one that operates through rationalities of security and techniques of risk mitigation. As he notes, “whereas modernism heralded futures of progress, efficiency, and stability, there is a global trend toward envisioning urban futures as futures of potential crisis, catastrophe, and collapse.” Cities of the global South should no longer be expected to follow the development pathways of the “modern cities” of Europe and North America: indeed, cities from the North are now confronted with problems of insecurity, environmental threats, and terrorist violence that seem to come straight from the South. As one modern critic notes, “Lagos is not catching up with us. Rather, we may be catching up with Lagos.” This dystopian vision of the global urban future stimulates technologies of control and exclusion. A new urban security paradigm demands that all cities deploy protective and precautionary strategies against a range of threats in order to ensure their own reproduction. For Austin Zeiderman, models of urbanity that focus exclusively on risk and security draw resources away from concerns such as poverty, equality, education, housing, healthcare, or social justice. The politics of rights—rights to decent housing, rights to the city, human rights—becomes subordinated to a politics of life. Austin Zeiderman shows that this politics of life—in its devotion to the vulnerable, the dispossessed, and the victim—creates new forms of vulnerabilities, dispossession, and exclusion. By determining how certain forms of life are to survive, endure, or flourish, while others are abandoned, extinguished, or left to go extinct, biopolitics is inseparable from a politics of death, a thanatopolitics.

Okinawa has been disposed three times in modern history. The first disposition occurred in 1609, when the feudal lord of the Satsuma domain invaded what was then the Ryūkyū kingdom and transformed it into a vassal state. The second annexation took place in 1879, when Ryūkyū was formally incorporated into Japan as Okinawa Prefecture. The third shift in sovereignty happened in 1972 when the US reverted to Japan the islands they had occupied since 1945. On these three occasions, disposition was a form of dispossession: the people were not consulted, and the islands were treated as a pawn in a larger geopolitical game. Okinawa mattered because of its position halfway between Japan and China, intersecting the trade routes that went down to South-East Asia. Central to the former kingdom’s maritime activities was the continuation of the tributary relationship with Ming Dynasty China, which allowed the Ryūkyū islands to flourish and prosper. In terms of culture as well, the Ryūkyū islands were a mix between Chinese, Japanese, and insular influences. Wendy Matsumura’s book focuses on the period between 1879 and the early 1930s and seeks to chart the limits of Okinawa as an imagined community. Okinawa was first conceived as a feudal domain resisting Japan’s imperialism; then as an economic community facing the inroads of imported capitalism; and lastly as a diasporic and deterritorialized ensemble faced with discrimination and marginalization. Each time, the articulations of community by Okinawa’s rulers and intellectual were met with local resistance and led to alternative modes of mobilization.
In everyday language, a materialist is defined as a person who considers material possessions and physical comfort as more important than spiritual values. According to Madonna’s famous song, “we are living in a material world.” Says the Material Girl: “Some boys kiss me, some boys hug me / I think they’re okay / If they don’t give me proper credit, I just walk away /…/ ‘Cause the boy with the cold hard cash is always Mister Right.” Madonna may not have had in mind the new materialisms referred to in the book edited by Diana Coole and Samantha Frost. Here materialism refers to the philosophical doctrine that nothing exists except matter and its movements and modifications, as opposed to spiritualism that posits a dualism between subject and matter. But the material girl’s lyrics may provide a good entry point into this volume. After all, Madonna’s kissing and hugging addresses a strong message to the feminists who have been accused of routinely ignoring the matter of corporeal life. In exposing her body, Madonna draws our attention to what really matters (sex), while referring to non-bodily retributions (money) that also matter a great deal. So my materialist questions to the book will be: Do we still live in a material world according to these new versions of materialism? Do the authors give proper credit, and to whom? What does the reader get from his or her cold hard cash? And are the contributors always Mr (or Mrs) Right?
“Appetite for food and sex is nature.” Or so says the sage Mencius, as translated by D.C. Lau. But Judith Farquhar begs to differ. For her, food and sex, and our appetites for them, are historical matters through and through. As proof, she points the fact that, in contemporary China, attitudes towards carnal and dietary consumption have changed dramatically in the course of less than two decades. China has transited from a socialist to a market economy and, in the process, a new body has emerged, with new attitudes towards food and sex, with new appetites and desires. The new Chinese body differs substantially from its previous socialist version. The socialist body was frugal, martial, and asexual. The new body is gluttonous, relaxed, and sensual. If what constitutes our most intimate dimension can change in such a short span of time, then it is proof that food and sex do not stand on the side of nature, but belong squarely to the camp of history and human society. Appetite for food and sex is not nature: it comes from our second nature as social and historical beings.
In The Nick of Time, Elizabeth Grosz wants to make Darwinism relevant for feminism, and for critical studies in general. This is a challenging task: social Darwinism has often been associated with a conservative or reactionary agenda. Darwin’s epigones, from Herbert Spencer to Francis Galton, who applied his theories to society and to culture, posited the hierarchy of races and the survival of the fittest. They in turn influenced Nietzsche and his theory of the overman, who was picked up by Nazis and by white supremacists for their nihilistic agenda. There seems to be an inherent contradiction between Darwin’s idea of natural determinism and a progressive agenda that emphasizes equal rights and opportunities. This contradiction is based, according to Elizabeth Grosz, on misreadings of Darwin and a deformation of Nietzsche’s thought. Darwin and Nietzsche never said what some people made them to say. The solution, for her, is to go back to the original texts and to read them in the light of recent advances in the biological sciences and in social theory. In doing so, one not only lays the foundation of a progressive social agenda; reconciling biology and culture, nature and society, is also a way to put back the body, and the corporeal, back at the center of political theory and feminist struggle. As Grosz argues, “the exploration of life—traditionally the purview of the biological sciences—is a fundamental feminist political concern.”
Achieving sovereignty, and attaining equal standing with other sovereign nations, was Korea’s great enterprise as referred to in the book’s title. It was a thoroughly modern project: previous generations did not feel the urge to compare with other sovereign states or to assert Korea’s distinctiveness. Beginning with the turn of the century, Korea’s commitment to the great enterprise was a necessary condition for avoiding subordinate status in the face of imperial ambitions. Then, as Japan came to dominate Korea, it became a way to break free from its colonial ruler and to campaign for its independence. Later on, emphasizing national sovereignty meant proclaiming the nation’s unity in the face of the North/South division.
There are two kinds of Asian studies on North-American campuses. The first, area studies of Asia, grew out of the Cold War and of the United States’ need to know its allies and enemies better. It is politically neutral, although some critics would consider it conservative in essence, due to its modalities of topic selection, standards of scholarship, sources of research funding, and practical applications. It focuses on the production of experts on a specific region of the world which is of strategic interest for the United States. It usually requires the mastery of at least one Asian language, acquired through years of painful learning and extended stays in the country being studied. Great scholars have contributed to the field and have led distinguished careers that have brought them into positions of leadership within and outside academia.
Scholars working in cultural studies are an unruly lot. They spend a great deal of energy patrolling disciplinary borders, falling down on trespassers and ensuring conformity within the field. Some mount raids on neighboring fields for intellectual loot, or claim new territories as their own. They try to regulate their quarrels with political correctness and abstruse jargon. But attacks are not muffled by circumvolved syntax or otiose vocabulary. If anything, they are made even more venomous, as one can articulate in complex sentences what one wouldn’t dare to write in plain English. Liberals are very illiberal when it comes to arguing with each other. Academics of the cultural bent are willing to wash their linen in public, to bring cadavers out of family closets, and to expose the dirty little secrets of the profession, if only for the sake of enhancing their own status. For them, it appears like business as usual. But for outside observers, who have come to associate scholarly pursuit with disinterestedness and gentlemanly behavior, this aggressiveness comes as something of a shock.