White employers and black migrants proved only marginally amenable to location concepts modelled on the principles of quarantine. Especially at Port Elizabeth, where independent peri-urban settlements proliferated, white officials and politicians laboured in an administrative and legal quagmire. A black ‘middle class’ resisted the loss of property rights and clung to aspirations of economic and social mobility or legal independence. These moves and the effort to consolidate them were to a large degree frustrated by practical administrative, legal, economic and human factors which have characterized the anomalies and contradictions of urban location policy ever since. Cape Town and Port Elizabeth were the two foci of this development in the Cape Colony, where the government locations at Ndabeni and New Brighton exemplify the process. Inchoate urban policy, under tentative consideration since the 1890s as economic development and social change began to stimulate black urban migration, was precipitated by this episode into specific legislation and permanent administration. Between 19 bubonic plague, threatening major centres, occasioned the mass removal of African urban populations to hastily established locations at the instigation of medical authorities and other government officials under the emergency provisions of the public health laws. Infectious disease and concepts of public health, operating as societal metaphors, seem to have exercised a powerful influence on the origins and development of urban segregation in South Africa.
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