Pseudo Participation?: Conflict Resolution for the Relocation of
Bloater Sellers in the city of Surabaya
Erna Setijaningrum
1
and Fierda Nurany
2
Faculty of Social and Political Sciences, Universitas Airlangga, Surabaya, Indonesia
Keywords: Relocation, smoked fish traders, conflict, conflict resolution, participation.
Abstract: The purpose of this research is to identify the degree of participation of smoked fish traders in conflict
resolution efforts conducted by the Surabaya City Government in relocating those sellers from along the curb
of Kejawan Lor to Sentra Ikan Bulak (Bulak Fish Center) Surabaya. The relocation is caused by the presence
of smoked fish traders which has disrupted the esthetics of the city, the order, and the comfort of the
surrounding community. However, the relocation plan did not succeed to move them to the new location,
even it inevitably triggered conflict between Surabaya City Government and the sellers. Hence, conflict
resolution undertaken by the Surabaya municipal government is to conduct conciliation with providing space
to participate for smoked fish traders. The theory used in this research is conflict resolution theory from
Dahrendorf (1998) which mentions three forms of conflict resolution, namely: 1) conciliation, 2) mediation,
and 3) arbitration. Meanwhile, to measure the degree of participation, the theory of Arnestein (1969)
introduces ladder of participation which consists of 1) non participation (manipulation and theraphy) 2)
tokenism (informing, consultation, and placation) and 3) citizen power (Partnership, delegated power and
citizen control).The result of this research indicates that unsuccessful relocation of smoked fish traders to
Sentra Ikan Bulak is due to the giving of participation space only at tokenism degree. In other words, it is only
a formality. Meanwhile, the level of sellers' participation is merely on consultation or accommodating the
proposal. In other words, the Surabaya City Government accommodated all proposals from smoked fish
merchants, yet did not grant the entire offers. Thus, it did not resolve the conflict.
1 INTRODUCTION
The term peddler in Indonesia was first known in the
Indies era, precisely at the time of Governor General
Stanford Raffles ruling in 1811-1816. He issued a
regulation requiring informal traders to make a
distance of 5 feet or about 1.2 meters from a formal
building in the city center (Danisworo, 2000).
Meanwhile, according to Presidential Regulation No.
125 of 2012, PKK is a business actor engaged in
trading business using movable and immovable
business facilities, using municipal infrastructure,
social facilities, public facilities, land and buildings
owned by the government and / or private property
that is temporary / non-permanent.
Street vendors in Indonesia are generally low-
income, education and low-skilled societies that they
assume the work is the best job for survival. Street
vendors are commonly found in urban areas due to
the absence of an entire workforce that is increasingly
growing. As a result, people with low educational and
skill backgrounds are unable to compete for available
job positions. Therefore, the informal sector such as
the street vendors business becomes the main
alternative and thrives in line with the growth and
development of urban population. According Suyanto
(2008) there are several traits of street vendors; the
pattern of distribution is generally close to the crowd
and without permission to occupy the zones that
should belong to the public. Second, street vendors
generally have resilient social resistance to pressure,
such as government's order. Third, they have an
involutive mechanism of employment. Fourth, most
of the street vendors are migrant communities, and
the adaptation process is formed on patronage
relationships based on the bonding factor of similarity
of origin. Fifth, in average, the sellers do not have
alternative skills and skills to develop new businesses
outside the informal sector in urban areas. In line with
that, Mitullah (2003) characterizes street vendors are
traders who use tables, carts or bicycles that choose
strategic places such as main roads, sidewalks, parks
Setijaningrum, E. and Nurany, F.
Pseudo Participation?: Conflict Resolution for the Relocation of Bloater Sellers in the city of Surabaya.
In Proceedings of the 2nd International Conference on Sociology Education (ICSE 2017) - Volume 1, pages 269-276
ISBN: 978-989-758-316-2
Copyright © 2018 by SCITEPRESS – Science and Technology Publications, Lda. All rights reserved
269

and corners of the city as a selling area. Street vendors
sell items that are cheaper than store prices and work
between 8-12 hours a day with varying cover times.
Surabaya is one of the big cities in Indonesia that
has quite a lot street vendors. Based on data from the
Department of Cooperatives and Micro Enterprises,
Surabaya shows that the number of street vendors in
Surabaya in 2013 as many as 11,508 traders spread
over 560 points. While in 2014, a number of 10,952
traders are spotted in 415 dots. Towards its
development, the number of street vendors decreased
dramatically in 2015 to 6,324 at 395 points and in
2016 around 6,129 traders at 366 points.
Figure 1: Development of Street Vendors of Surabaya. Source: Department of Cooperatives and Micro Enterprises Surabaya
City.
By region, the distribution of street vendors in
North Surabaya in 2016 is as many as 702 traders at
55 points. In South Surabaya, as many as 1616 traders
at 80 points. Central Surabaya has as many as 1,418
traders at 88 points. West Surabaya has
approximately 1340 traders at 70 points. While in
East Surabaya, there are 1,053 traders at 73 points.
The number of spread of street vendors in
Surabaya to make the city of Surabaya in a
dilemmatic condition, on the one hand can create jobs
while on the other hand a burden for the city. The
existence of street vendors is often regarded as a
source of problems. This happens because street
vendors often violate the use of public spaces such as
trading on sidewalks, road shoulders, city parks, over
waterways, and so on, which results in disturbing the
city's beauty, order, and the convenience of road
users.
One of the kinds is street vendors in Bulak sub-
district, North Surabaya. Bulak sub-district is one of
the coastal areas in Surabaya; most of its citizens are
experts in processing seafood such as processing
smoked fish. The main livelihood of the residents is
selling smoked fish. Approximately 30 smoked fish
traders sell their products by opening a stall along the
edge of Jalan Kejawan Lor, precisely in front of the
Beach Amusement Park (THP) Kenjeran. Some of
them fish-wash in the river near their stalls before
starting the process of fogging. Then, in the early
hours, usually these merchants start smoking with a
simple stove.
Figure 2: The stalls for smoked fish traders are usually
located along roadside of Kejawan Lor. Source:
Documentation of the Civil Service Police Unit.
ICSE 2017 - 2nd International Conference on Sociology Education
270

Unfortunately, the existence of fish traders caused
troublesome among the local people. Various public
complaints against the activities of the fish traders
such as the smell of smoke that is easily attached to
clothing, air pollution, traffic fluency is disrupted, the
environment becomes dirty. This issue is ultimately a
burden for the Surabaya City Government.
Figure 3: Fish washing process. Source: Documentation of
the Civil Service Police Unit.
As an effort to arrange smoked fish traders in
Bulak District, the Surabaya City Government
relocated them in mid-December 2011 to January
2012. Relocation is undertaken by arranging and
transporting the smoked fish traders to a place called
Sentra Ikan Bulak by providing stand for selling. The
legal basis covered this relocation is the Local
Regulation of Surabaya City number 17 of 2003 on
Structuring and Empowerment.
However, in fact, the smoked fish traders are
reluctant to occupy Sentra Ikan Bulak (Bulak Fish
Center) provided by the Surabaya City Government.
From interviews with smoker fish traders, they are not
willing to be relocated due to the four main things:
firstly, the central location is far from their dwellings
that makes them difficult to mobilize. Secondly, the
location of Sentra is far from the amusement park and
thus, many people are not aware of the existence of
the center. This makes the turnover of smoked fish
merchants decreased which was originally around
IDR 1,000,000, - per day to about IDR 500.000, -
Thirdly, the chimney available in Sentra Ikan Bulak
(Bulak Fish Center) is not sufficient. Fourth, there are
other fish traders who open new stalls in the old place.
In order for smoked fish traders to be relocated,
then in 2014 Surabaya Municipal Government
informs them to not to sell their products in the old
place. They are obliged to move to Sentra Ikan Bulak
(Bulak Fish Center). But these merchants ignore the
socialization and keep selling at the old location. This
is the beginning of conflict between Surabaya City
Government and smoked fish traders. There are
several conflict triggers that cause these smoked fish
traders to not relocate to new places. The trigger of
conflict and action of smoked fish traders can be seen
in the following table:
Table 1: Triggering Conflict That Causes Traders of
Smoked Fish Unwilling to be Relocated.
Numb
er
Conflict Triggers
Merchant
Actions
1.
Infrastructure at the new
location is not sufficient and
decent.
Keep
trading on
the old
location
2.
By the time some smoked fish
traders are willing to occupy a
new location, the revenue
decreases drastically.
Return to the
previous
location.
3.
The government carried out
evictions with acts of violence
Keep
trading on
the old
location
4.
Willing to move to a new
location, but the products were
not sold out, hence the revenue
declined.
Traded at
the old
location
Source: The result of the data
Because the socialization by the Surabaya City
government failed to relocate the smoked fish traders,
the Surabaya City government made another strategy
by using conflict resolution. The smoked fish traders
are invited to discuss and be given the opportunity to
participate so they can give expected suggestions to
support the relocation. The first conflict resolution
effort was made on January 2, 2014. The Surabaya
municipal government negotiated resulting on the
agreement that the traders will occupy the Sentra Ikan
Bulak (Bulak Fish Center) on January 06, 2014. Yet,
until the deadline, the traders have not occupied his
stand. Surabaya City Government conducted a second
conflict resolution on January 8, 2016 and it was
attended by 30 merchants. They suggested that the
facilities at the Sentra Ikan Bulak (Bulak Fish Center)
are still inadequate regarding to the non-optimized
chimneys. Surabaya city government's response was
to build an adequate chimney, while the smoked fish
traders were defending their ideas to return to the old
location. After the construction of the chimney was
complete, the smoked fish traders were encouraged to
return to Sentra Ikan Bulak (Bulak Fish Center).
However, this effort was unsucceeded. The third
resolution effort was conducted by the subdistrict
apparatus on February 23, 2015 by socializing the
merchants back to Sentra Ikan Bulak (Bulak Fish
Center). This continued at the forth meeting on June
5, 2015 with the results of smoked fish traders were
willing to occupy the Sentra Ikan Bulak (Bulak Fish
Pseudo Participation?: Conflict Resolution for the Relocation of Bloater Sellers in the city of Surabaya
271

Center), but then they went back again to the old
location. Subsequent resolution of the fifth conflict
was carried out by the sub-district apparatus on July
19, 2016 through negotiations. The result of the
negotiation was the expectation of the smoked fish
traders for Sentra Ikan Bulak (Bulak Fish Center)
location; in addition, there should be the place to sell
smoked fish and food products made from smoked
fish and entertainment events to attract the public
attention. The response of Surabaya City Government
is to fulfill all suggestion from the people bloaters, but
these efforts have not succeeded until nowadays.
Figure 4: Sentra Ikan Bulak (Bulak Fish Center) is not as
crowded as the other traditional market, there is almost no
buyer. Source: Documentation of the Civil Service Police
Unit
The unwillingness of smoked fish traders to move
to Sentra Ikan Bulak (Bulak Fish Center) shows that
the Surabaya City Government has not succeeded in
resolving the conflict despite negotiations and giving
the opportunity to the targets to participate.
Therefore, the researchers are interested to know how
the Surabaya city government conciliates in the form
of discussion / negotiation to reach mutual agreement
in resolving the conflict. Furthermore, researchers are
also interested to know the degree of participation of
smoked fish traders in the settlement of the conflict.
Several studies on conflict resolution by the
government in relocating street vendors have been
widely used. Boojobun (2017) conducted a study on
conflict resolution undertaken by the Bangkok
Government in an effort to structuring the city in
2014. The Bangkok government made the rules on
city planning called the Bangkok Metropolitan
Administration (BMA) through the policy of
"reclaiming pavements" reclaimed sidewalks to
restore pavement functions as pedestrian spots. This
led to the eviction of about a quarter of street vendors
in bangkok. Attempts to remove street vendors have
resulted in demonstrations and violence rooted in
gangster conflicts. Furthermore, conflict resolution
efforts are conducted with the intermediary of a monk
as a mutually agreed mediator. The conflict resolution
eventually succeeds in moving street vendors to new
places such as the Chang Tha area.
Milgram (2011) examines conflict resolution
efforts between the government of Baguio City,
Philippines and female street vendors. The emergence
of conflicts stems from the introduction of Baguio
city regulations in 2007 which prohibited trade along
the central business district roads. Baguio City's
government planned to relocate the merchants to the
suburbs. Furthermore, traders formed associations as
representatives in conducting conflict resolution. The
agreement was a business agreement between a
female street vendor, shopkeeper in the business
district, and the government of Baguio city, so they
can sell along the business district.
In the Owusu-Sekyere et al (2016) study, the
Kumasi municipal government in Ghana (West
Africa) has sought to evict street vendors periodically
at the Centra Business District (CBD). Evictions were
carried out by confiscating goods, raising money to
beating on street vendors. This situation eventually
causes tension and conflict. To that end, the city
government of Kumasi negotiated with various
interest groups such as the United Traders
Association and business and retail stakeholders to
determine conflict resolution. The resulting conflict
resolution is the Kumasi Metropolitan Assembly
(KMA) in the form of providing a satellite market for
traders in the CBD who do not own a store. In the
contrary, the resolution of this conflict is not
approved by street vendors because of high rental
prices, poor infrastructure, and a few of buyers.
Another conflict resolution is KMA should impose a
daily tax on street vendors in the CBD. However, this
policy makes the Municipal Government of Kumasi
highly financially profitable and opens opportunities
for corruption. Finally, conflict resolution is achieved
with the CBD agreement not being displaced or
relocated as long as the street vendors vote in the
election period.
These three studies show that implementing
conflict resolution requires help from social agent
such as religious leaders and trader associations as
mediators. The conflict resolution conducted by
Surabaya City Government, however, was without
involving other party as mediator, but directly
discussed with the bloater sellers.
2 RESEARCH METHODS
This research uses desciptive qualitative approach.
The informants are as many as 10 from smoked fish
ICSE 2017 - 2nd International Conference on Sociology Education
272

traders, 2 persons from the Agriculture Office, and 2
from the Kecamatan (subdistrict officers) Data
collection methods were conducted through in-depth
interviews, secondary data, and field observations.
While to analyze the data, the writers use interactive
analysis (Miles et al, 2014); an analysis consisting of
four activity lines of data collection, condensation
data, data presentation, and conclusion.
3 RESULTS AND DISCUSSION
Pace and Faules (1994) define conflict as an
expression of contention between individuals or
groups for several reasons. In this view, dispute
shows the difference between two or more
individuals. Meanwhile, Miall, et al (1999) states that
conflict is the opposite difference and has its own
peculiarities. Miall categorizes conflicts into 2 types:
symmetrical and asymmetric conflicts. A
symmetrical conflict is a conflict of equal importance,
such as a conflict between two individuals or two
organizations. While asymmetric conflict is a conflict
of interest that arises between different parties such
as government conflicts with insurgent groups. In this
case, asymmetrical conflict has a syllogism that the
top level always wins and the lowest level always
loses.
The conflict between smoked fish merchants and
the Surabaya City Government is an asymmetrical
conflict. This conflict occurred between the Surabaya
city governments as a government institution with
smoked fish traders as a community of street vendors.
Surabaya city government has the power to regulate
the presence of smoked fish traders (which is the
category of street vendors) in an effort to beautify and
order the urban planning of a city. Meanwhile,
smoked fish traders group as a target group that must
comply with the rules of the government. To
strengthen the role as regulator, the Government of
Surabaya City enforces the Regional Regulation
number 17 of 2003 on Structuring and Empowerment
of Street Traders. In Chapter II, article 2 on the
Management of the Place of Business, it is mentioned
that: 1). Business activities of street hawkers can be
done in the Region, 2). Regional Head is authorized
to assign, move and remove the location of street
hawkers, 3). Stipulation, evacuation, and location
removal of the street vendors shall be regulated
considering the social, economic, order and
environmental hygiene interests of the surrounding
area. 4) The Regional Head is also authorized to
prohibit the use of certain public utility land as a place
of business of street vendors, 5). Everyone is
prohibited from trading with street vendors at public
facilities that are prohibited as a place of business of
street vendors. Whereas in Article 3, it is explained
that the Head of Region or appointed official has the
authority to: a) stipulate and regulate the business
activities of the street vendors, b) establish and
manage the number of street vendors at their location,
c) specify the types of traded goods and d) arrange
props for street vendors. Based on the formal rules,
the Surabaya city government argued that the
relocation of smoked fish traders is for their sake of
social, economic, orderliness, and environmental
hygiene.
According to Galtung (2003), conflicts can be
prevented or regulated if conflicting parties can find
ways or methods of negotiating differences of
interests and agree on rules to govern conflict. In
other words, conflicts can be resolved depending on
how the conflict resolves so as not to develop into a
disadvantage. In this regard, Fisher (2001) mentions
that there is an attempt to address the causes of
conflict and then seek to build a lasting relationship
between the disputants. As Mindes (2006) argues that
conflict resolution is the ability to resolve a difference
that requires skill in negotiating, compromising, and
justice. Meanwhile, Dahrendorf (1998) mentions that
there are three forms of conflict arrangements
commonly used as conflict resolution: 1)
Conciliation, where all parties discuss and argue
openly to reach an agreement without the party
monopolizing the conversation or imposing the will.
2) Mediation, when both parties agree to seek advice
from a third party. 3) Arbitration, both sides agreed
to have a final, legal decision from the arbitrator as a
way out of the conflict.
In relation to how to resolve the conflict in the
relocation of smoked fish traders, the Surabaya City
Government uses conciliation method. How
conciliation taken is a discussion to reach a mutual
agreement. There have been 5 discussions that
resulted in a mutual agreement to address the
problems related to the relocation. Here is a table of
conciliation activities undertaken between the
Surabaya City Government with a smoked fish trader.
Table 2: The Conciliation between Surabaya City
Government and Smoke Fish Traders.
Num-
ber
Date of
Meet-
ing
Present
Representatives
Agreement
1.
02/01/
2014
1.The sub-
district head
and staff from
Bulak sub-
district
Delaying
relocation of
smoked fish
traders
Pseudo Participation?: Conflict Resolution for the Relocation of Bloater Sellers in the city of Surabaya
273

2.Wholesaler of
smoked fish
2.
08/01/
2014
1.The sub-
district head
and staff from
Bulak sub-
district
2.Representative
s from the
Department of
Agriculture
and Food
Security
3.Wholesaler of
smoked fish
While waiting
for the
completeness of
the means of
infrastructure,
traders are
provided place
of contemporary
curing and
washing fish in
other locations
3.
2/23/
2015
1.The sub-
district head
and staff from
Bulak sub-
district
2.Wholesaler of
smoked fish
Traders are
willing to
occupy Sentra
Ikan Bulak
(Bulak Fish
Center) but
return to the old
location because
it has almost no
visitor.
4.
05/06/
2015
1.The head and
staff from
Bulak sub-
district
2.Wholesaler of
smoked fish
Traders are
willing to
occupy Sentra
Ikan Bulak
(Bulak Fish
Center) but
return to the old
location because
it has almost no
visitor.
5.
July
19,
2016
1.The sub-
district head
and staff from
Bulak sub-
district
2.Representative
s from the
Department of
Agriculture
and Food
Security
3.Wholesaler of
smoked fish
Wholesalers of
smoked fish are
willing to
occupy the
Sentra Ikan
Bulak (Bulak
Fish Center) as
long as it is
provided with
food made of
fish, it
frequently hosts
events to enliven
Sentra Ikan
Bulak (Bulak
Fish Center),
and the
government
purchases the
whole unsold
smoked fish
Source: The result of the data
From the conciliation, it is seen that the Surabaya
city government provides space for smoked fish
traders to participate in overcoming the problems.
According to Graham and Philips (1998) at the level
'local government' they categorize public
participation into two types, first the participation of
citizens in the overall process of election of city
leaders. Second, public participation involves
interaction and two-way communication to influence
policy decisions. The type of participation given to
smoked fish traders is by interaction and two-way
communication in the form of discussion and
negotiation.
Arnestein (1969) introduces ladder of
participation with categorizing participation based on
degree of participation that is a). No participation
consists of manipulation and therapy. b). tokenism,
consisting of informing, consultation, placation and
c). Citizen power consists of partnership, delegated
power and citizen control. The lowest level is a very
low level of community participation, then the top
level is the level where community participation is
very large and strong. The following is an explanation
of community participation in the ladder of
participation of Arnestein.
Table 3: Ladder of participation.
Num
ber
Ladder of
Participation
The Nature of
Participation
Level of
Participation
1.
Manipulation
The government
elects community
representatives to
approve various
programs
No
participatio
n
2.
Therapy
The government
only informs the
public about some
programs.
3.
Informing
The government
informs various
programs that will
be and have been
implemented, yet
merely
communicates
through one way
direction.
Tokenism /
justification
just to say
yes, in
terms of
sudden
agreement.
4.
Consultation
The government
discusses with
many elements of
society on various
agendas. All
suggestions and
criticism are heard
but those who have
power decide the
result.
5.
Placation
The government
promises to do
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various suggestions
and criticism from
the public, but they
secretly runs the
original plan
6.
Partnership
The government
treats society as a
co-worker. They
partner in designing
and implementing
public policies.
Citizen
power is in
the
community
7.
Delegated
Power
Delegation of
authority by the
government to the
community.
8.
citizen control
The public is more
dominant than the
government, even
up to evaluate
performance
Source: Arnestein (1969)
Associated with the theory of the Arnestein,
thus, the degree of participation of smoked fish
traders is assumed on the degree of tokenism.
Looking further, it turns out that ladder of
participation smoked fish merchants are at the
consultation level only. Data on degree of
participation and ladder of participation can be seen
on the nature of smoked fish traders in relocation to
Sentra Ikan Bulak (Bulak Fish Center). The
inclusion of smoked fish traders in conflict resolution
on business relocation is shown in 5 conciliation
agenda. They have given suggestions and criticism
related to the relocation to Sentra Ikan Bulak (Bulak
Fish Center). But not all the proposals submitted by
smoked fish traders can be granted by the city of
Surabaya. Data on the nature of smoke fish traders in
the effort of conflict resolution on relocation of
business from along Kejawan Lor road to Sentra Ikan
Bulak can be seen in the following table:
Table 4: The Nature of Participation of Smoked Fish Traders in Conciliation with Surabaya City Government.
Number
Date of Meeting
Suggestions of the
Trader of Smoked
Fish
Government Response
The Nature of
Participation
1.
02/01/2014
Delaying relocation
The government gave the time period
requiring them to dismantle the tent in
the old location
The government
invites discussion and
accommodates the
proposal. But the
decision is still taken
unilaterally by the
government
2.
08/01/2014
Improvement of
facilities and
infrastructure for the
purpose of fish
washing and
fumigation;
particularly of
chimneys and
blowers
Government improves facilities and
infrastructure. In the meantime, curing
and fish washing would be provided in
other locations
Idem
3.
2/23/2015
Asking the
government to make
the Sentra Ikan
Bulak (Bulak Fish
Center) busy visited
by buyers
The government does the eviction with
the assumption that the Sentra Ikan
Bulak (Bulak Fish Center) will be
crowded if it is filled by smoked fish
traders
Idem
4.
05/06/2015
Asking the
government to make
the Sentra Ikan
Bulak (Bulak Fish
Center) busy visited
by buyers
The government does the eviction with
the assumption that the Sentra Ikan
Bulak (Bulak Fish Center) will be
crowded if it is filled by smoked fish
traders
Idem
5.
19/07/2016
The government
hosts the event to
enliven the Sentra
The Government instructs all the Local
Government Working Units of Surabaya
to organize the event for Sentra Ikan
Idem
Pseudo Participation?: Conflict Resolution for the Relocation of Bloater Sellers in the city of Surabaya
275

Ikan Bulak (Bulak
Fish Center)
The government
buys all the unsold
smoked fish
Bulak (Bulak Fish Center) in order to
attract visitors.
The government provides freezers to
store smoked fish and transport vehicles
for the mobilization of traders.
Source: The result of the data
From the table, it is seen that the Surabaya city
government has provided an opportunity for smoked
fish traders to participate by providing some
suggestions. It can be seen that street vendors have
also voiced their opinions to delay the relocation,
improvement of infrastructure suggestion, the effort
for Bulak Fishing Center to be visited by the public
through the provision of certain interesting events, as
the demand that the Surabaya City government will
bear the losses of the merchants by buying their entire
unsold products. However, it is also seen that the
Surabaya City Government is not willing to fulfill the
suggestion from smoked fish traders, even the
Surabaya City Government makes a decision that is
not fully in favor for smoked fish traders.
4 CONCLUSION
The unsuccessful efforts to relocate smoked fish
traders from along the curb of Kejawan Lor to Sentra
Ikan Bulak (Sentra Ikan Bulak (Bulak Fish Center) is
more likely because the Surabaya city government is
less able to accommodate the interests of the traders.
Conflict resolution attempted to solve the problems
often adds new problems. Although the Surabaya
City Government has given space to participate to
smoked fish traders through conciliation, this effort
has not succeeded in getting traders to move to new
locations. Participation space is merely a formality,
where the Government is willing to accommodate the
various proposals given by the merchant’s but the
final decision tends to remain unsatisfying for the
merchants' needs. This seems to trigger new conflicts
and increasingly cause smokers fish traders be
reluctant to move to the new locations.
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