Adaptive governance of urban informality in the face of climate change: street vendor practices in Johannesburg, South Africa

Climate change is intensifying the vulnerabilities faced by street vendors in cities of the Global South. Flooding, extreme heat and other climate-related events disrupt trading, damage goods, threaten safety and reduce incomes. These impacts are compounded by longstanding challenges such as inadequate infrastructure, insecure trading environments and exclusion from formal urban planning.

This paper asks the following question: what happens when formal systems do not adequately protect informal workers from climate risks? Drawing on survey data and interviews with street vendors, local government officials and leaders of the African Traders Organisation (ATO), the study shows how vendors in Johannesburg develop adaptive governance practices to sustain their livelihoods during climate disruptions.

The evidence shows that ATO and street vendors collectively provide infrastructure, security, financial support and market access. These include gazebos, temporary storage and cleaning services (infrastructure); patrollers (security); emergency loans and collective savings (financial support), and WhatsApp and Facebook to maintain market access during adverse weather events.

One of the paper's key insights is that informality should not simply be understood through the lens of vulnerability. The evidence points towards “informality as agency”, showing how informal workers organise, mobilise resources and collectively solve problems in the face of climate risks. However, this should not lead to state withdrawal in supporting the activity. Informal adaptive systems remain fragile and unevenly resourced when they lack formal recognition and institutional support. The paper therefore calls for stronger collaboration between municipalities and informal organisations, and for street vendors to be incorporated into urban climate adaptation planning and infrastructure investment.

Key points

• Street vendors are exposed to climate-related hazards, but the impacts are intensified by existing vulnerabilities such as inadequate infrastructure, insecure trading conditions and exclusion from urban planning.
• The research shifts the narrative from “informality as vulnerability” to “informality as agency”. Vendors actively organise, mobilise resources and fill important governance gaps to protect their livelihoods during climate disruptions.
• While vendors and their organisations demonstrate adaptive capacity, their responses remain constrained by inadequate infrastructure and limited institutional support. The paper therefore argues for structural reforms that recognise and integrate informal workers into urban planning and governance.
• Social protection is being organised from below. Emergency loans, collective savings schemes, mutual aid and other forms of reciprocity provide important financial buffers when vendors experience climate-related disruptions.
• Digital tools are becoming part of climate adaptation. Vendors are increasingly using platforms such as WhatsApp and Facebook to maintain customer relationships and market access when adverse weather makes conventional trading difficult.
• Climate adaptation needs to be co-produced. The paper's central message is that municipalities should work with, and not simply regulate, informal workers and their representative organisations. Integrating street vendors into climate adaptation planning, investing in appropriate infrastructure and strengthening partnerships can help create more inclusive and climate-resilient urban systems.

Recommended citation

Modiba, M. and Khanyile, S. (2026). Adaptive Governance of Urban Informality in the Face of Climate Change: Street Vendor Practices in Johannesburg, South Africa. Journal of City Climate Policy and Economy, 5(1), 17-44. https://doi.org/10.3138/jccpe-2025-0026

For further details, please contact Dr Mamokete Modiba [Mamokete.modiba@gcro.ac.za]