There is a number of things in the photograph that are going on at the same time. The panorama of a developing apartments on the right, to the dirt roads and trees on the left. There is a billboard with two serious looking men overlooking the numerous people. The people appear to be wandering about aimlessly, some holding produce from the store and some just appear to be standing around. In my perspective the photograph is symbolizing a purposeless life while under strong dictatorship power. We see the men scowling over the people and the people living their lives doing what seems to be nothing.
The website talks about how the photographer had a similar vision for this photograph. The buildings in the background are newly developed, hence the lack of roads and stop lights etc. Website explains that the photographer was trying to depict the lack of infrastructure under the leaders (on the billboard) and show how the people cannot be controlled and will still do as they please.
Good description of content as it relates to what you see in the composition. How are the people arranged?