Communicative and participatory paradigm in the European territorial policies. A discourse analysis

Communicative planning has been widely criticized for having little to do with the official legal procedures and for low-quality spatial solutions. It has also been blamed to be an empty concept, referring to an action that in itself has no content. This critique gives ground to the question: what is actually the role of the communicative and participatory paradigm in contemporary territorial policies? In this paper, we adopt discourse analysis methods to study the European documents on spatial planning in their three characteristic strands: smart city, integrated planning and multilevel governance. By extracting eight core principles (governance, sustainability, communication, participation, resilience, innovation, cooperation and coordination), we measure the importance of the communicative and participatory paradigm in the current planning discourse in Europe. We find that despite critique it remains one of the fundamental building-blocks of the European territorial policy. Communicative planning principles are visibly present in all the analysed strands of spatial planning in Europe.     

Class,Community and Communicative Planning: Urban Redevelopment at King's Cross,London

Abstract: This paper presents an argument for considering issues of class in analyses of communicative planning projects. In these projects, class interests tend to be obscured by the contemporary preoccupation with the class‐ambiguous category of “community”. Through a case study of a project of urban redevelopment at King's Cross in London, we conceptualize and map class interests in an urban redevelopment project. Three aspects of the planning process that contain clear class effects are looked at: the amount of office space, the flexibility of plans, and the appropriation of the urban environment as exchange or use value. These aspects structure the urban redevelopment but are external to the communicative planning process. The opposition to the redevelopment has in the planning discourse been articulated as “community”‐based rather than in class‐sensitive terms. We finally present three strategies for reinserting issues of class into planning theory and practice.     

Empowerment Planning in Regional Development

In the planning literature, there is a tendency to contradict top-down and bottom-up policies, government and governance and instrumental and communicative planning. However, through extensive action research in regional development practice, we have learnt that there is a need for combining them in adequate planning models, and we have found strong arguments in philosophy and theory for this combination when we go to the debate on modernization and the arguments in favour of better balance between communicative and instrumental rationalities. This article is a theoretical discussion of a planning model that we have called empowerment planning. In this discussion, we regard empowerment in regional development as a combination of top-down and bottom-up processes with the variables context, mobilization, organization, implementation and learning. Planning is regarded as a combination of instrumental and communicative rationalities in an institution-building process based on Habermas' will-forming process with different discourses. We present how a planning approach with institutional, strategic, tactical and operative levels of planning can stimulate different development variables, contribute to the institution-building process and strengthen the legitimacy of the planning institution.     

The Rhetorical Side of Transport Planning

A rhetorical approach to transport planning seemingly contradicts the traditional bias towards means-ends rationality and reliance on analytical techniques. However, this approach is useful for understanding transport planning in its present context. Two major causes are suggested for a possibly growing importance of rhetoric. One is the institutional setting of the transport planning authorities; the other is the changing conception of transport planning problems. Some archetypal rhetorical strategies are described, as well as a particular strategy aiming at the acceptance of road pricing. Acknowledging the rhetorical content of transport planning practice implies new challenges for transport planners. A normative framework based on communicative planning theory is outlined. The discussion draws upon case study material from transport planning in Trondheim, Norway.     

From Formal to Semi-formal and Informal Communication in Urban Planning. Insights from Polish Municipalities

Abstract

The communicative turn within planning theory results in a high diversity of planning forms, adapted to particular spatial and social contexts. The degree of their embedment in the official planning law is varied, therefore a precise definition of what is “formal”, “semi-formal” or “informal” may be a difficult task. Nevertheless, such attempts need to be made if we want to achieve a general conceptual and normative order in planning theory. In this study, 18 Polish municipalities experiencing a relatively fast growth in urban planning in recent years were examined. The analysis of the emerging new forms of public communication gave the following results: all the information produced within the planning process is perceived as public, though not all is publicly available; formal planning procedures are usually extended by the multiplication of statutory communication channels; the list of actors taking part in planning is dominated by landlords, developers and entrepreneurs, which affects plan formulation with an overbalance of economic factors. A general conclusion is that we may be witnessing a gradual shift from the traditional, hierarchical mentality in Polish planning towards a more communicative model.     

Changing Values in the Art Museum: rethinking communication and learning

In changing times older art-museum values are coming under challenge and new emphasis is being placed on museum-audience relationships. The professional development of new communicative approaches in art museums can be seen as a form of action research. Older modernist models for communication based on the transmission of authoritative subject-based facts to a mass of passive receivers are being superseded by new approaches that acknowledge 'active audiences', constructivist and interpretist learning theories and the complexities of cultural politics. New roles for art museum professionals, the concept of differentiated audiences, the intervention of new voices and the exposition of new narratives offer possibilities for the reconceptualisation of art museums that are rooted in late 19th-century modernist culture.     

Heritage as sector,factor and vector: conceptualizing the shifting relationship between heritage management and spatial planning

Heritage is a highly malleable concept that is constantly in flux and whose substance and meaning are continuously being redefined by society. From such a dynamic perspective, it is inevitable that new approaches and practices have developed for dealing with heritage in the context of planned development. While most scholars acknowledge the existence of various heritage approaches, one of the major defining features is often neglected: their distinctive outlook on spatial dynamics. In this article, the shifting role and purpose of heritage conservation in Dutch spatial planning is analysed. A conceptual framework is introduced that frames three approaches to the planning treatment of heritage; the sector, factor and vector approach, respectively. Although these approaches have developed in a historical sequence, the new did not replace the old but rather gained ground amongst different actors. Thus, three quite different ways of treating the past in the present now coexist in Dutch planning practice. Although this coexistence can raise conflict, we argue that contemporary heritage planning does not call for a one-size-fits-all approach, but rather for a mixed-mode model.     

Venturing Into Unknown Territory: The Preparation and Formulation of the Second Benelux Structural Outline

Inherent in transnational planning are obstacles which cause spatial planners to venture into unknown territory. The scale, the issues and the institutional context are significantly different from planning at the national level or below. What does this mean for the role of spatial plan-making, which is the cornerstone of the planning profession? This paper focuses on the role of plans as part of building transnational governance capacity. It does so on the basis of an in-depth case study of the preparation of the Second Benelux Structural Outline (1994–2000). The research material consists of a series of interviews with directly involved planners and administrators, primary sources such as internal reports of the Benelux Economic Union and direct observations by the researcher who attended several meetings of the planning committee. The paper starts with a short discussion of contemporary planning theory through which the formulation of the plan is analysed. Planning as a communicative process and planning as a programming process are central concepts in this analytical framework. The paper proceeds with an analysis of the making of the Second Benelux Structural Outline. A conclusion is that the plan as a communicative tool was not sufficiently developed during the planning process, in spite of the desirability of such a feature in this stage of building transnational governance capacity. The concluding remarks will focus on the ways in which the communicative dimension of future transnational plans can be improved.     

Dealing with Sustainability Trade-Offs of the Compact City in Peri-Urban Planning Across European City Regions

The compact city has become a leading concept in the planning of peri-urban areas. The compact city concept is often advocated as “sustainable” because of claims that include lower emissions and conservation of the countryside. The literature shows, however, that there are certain trade-offs in striving for compaction, especially between environmental and social aspects of sustainability. In this article, we describe expressions of the compact city concept in the planning practice of several European urban sample regions, as well as policies and developments that contradict the compact city. We look at examples of positive and negative impacts of the compact city that were observed in the sample regions. Further, we discuss attempts by planners to deal with sustainability trade-offs. Being aware that developments in the peri-urban areas are closely connected to those in the inner city, we compare the sample regions in order to learn how the compact city concept has been used in planning peri-urban areas across different contexts in Europe: in Western, Central and Mediterranean Europe, and with growing, stable or declining populations. We conclude with recommendations with respect to balance in applying the compact city concept.     

Conservation values,the authorised heritage discourse and the conservation-planning assemblage

The focus of this paper is the practice of conservation applied through the English planning system, termed conservation-planning. It argues that a distinct conservation-planning social entity has developed that may be described as an ‘assemblage’ and that the values and validated practice of conservation-planning are constructed as an authorised heritage discourse (AHD). Emphasis is placed upon the way that the AHD maybe mobilised by the conservation-planning assemblage in relation to other elite discourses, explored through the way that relationships have developed between the policy spheres of conservation-planning, regeneration and economic development. In doing so, it is argued conservation has successfully repositioned itself from being regarded as a barrier to development to being regarded as an active agent of change. Furthermore, the paper proposes that within the conservation-planning AHD we might detect sub-AHDs, organised around the short-hand labels of Conservation Principles, The Heritage Dividend and Constructive Conservation, each with a somewhat different rhetorical purpose. Through this analysis, we can better understand conservation-planning as a distinct heritage social entity and process. It shares values with other heritage activities but also has distinct differences, intimately related to its political relationship with other domains of urban management.     

Tracing resident antagonisms in urban development: agonistic pluralism and participatory planning

This article draws on research with resident action groups and other alliances in Sydney. It investigates the ways in which citizens work beyond the formal planning system to approach and achieve their urban development goals. The post‐political treatment of community voices in planning relies on the centrality of consensus politics in current participatory planning regimes. By providing a democratic outlet that is far removed from the actual development outcome, powerful urban actors can silence through inclusion. Planning theorists have posited that one pathway beyond this post‐political moment in urban planning is provided by Chantal Mouffe's critique of Habermasian communicative theory and consensus politics, which she bases on her theory of agonistic pluralism. Following Mouffe, to achieve a productive agonistic politics, any rigid antagonisms between “enemies” need to be moderated to more mutable “adversarial” positions. However, we have little knowledge of the conditions that might precipitate such a change in praxis. To address this gap between theory and praxis, we use focus group data to show how local resident action groups and urban alliances work through three modalities of antagonism to achieve their urban development goals. We add empirical weight to the idea that citizens can shift from rigid and fundamental antagonisms to the potentially more productive adversarial politics of agonistic pluralism but therein expose some limitations with how Mouffe's ideas are being applied to urban planning.     

How the Hands of Time Mould Planning Instruments: Iterative Adaptation Pushing Limits in Rural Areas

Apart from the concept of space being a main concern of spatial planning, the concept of time, too, has a role. Not only by setting time limits to substantive plans; planning is also subject to time and the implications of this are analysed in this paper. Planning instruments age and need cyclic maintenance for staying effective, a process referred to as iterative adaptation. But adaptation may not be sufficient when society has evolved too far away from the situation of the instrument's conception, whereby not only the content of plans should be considered (corresponding with substantive needs of society) but the intervention philosophy as well (corresponding with the image society has about the proper role of the government). In addition, each iterative adaptation takes time that may prove to be insufficient in a dynamic context. This paper refers to the rural planning instrument called land consolidation to demonstrate how time has moulded it and what the limitations for adaptation are.     

From Randstad to Deltametropolis: changing attitudes towards the scattered metropolis1

Although the Randstad planning concept is primarily known as a concept aiming to control urbanization, this article shows that world city ambitions have been inherent in the concept right from the beginning and that spatial planning for the Randstad over the past 50 years can also be seen as a prolonged attempt to give shape to these ambitions. Throughout much of this period it has proved politically impossible to turn these ambitions into concrete policies, although the recent turn to ‘Deltametropolis’ adds a rather interesting new chapter to this history. For the first time since its introduction, local and regional actors have themselves taken the initiative to frame and reframe the Randstad concept—by Dutch standards quite a remarkable sign of capacity building at the Randstad level. By spotlighting this particular dimension of the planning history of the Randstad this article touches upon some of the more notorious dilemmas planners may come across while pursuing world city ambitions for polynuclear urban regions.     

Planners' Role: Torn between Dialogical Ideals and Neo-liberal Realities

Planners are inclined to be in favour of public involvement and open processes and opposed to manipulation and lenient control of developers. The hypothesis here is that the attitudes of the typical Nordic planner, in particular, are much closer to communicative planning theory than to New Public Management. The planner role is currently under cross pressure from conflicting values and expectations held by educators and part of the professional community influenced by communicative planning theory on the one hand, and politicians and administrators promoting New Public Management on the other hand. However, patches of common ground are also identified and analysed, in particular the concern for user influence, service quality, and client satisfaction.     

Past and future for public participation in Norwegian physical planning

From around 1970 protests against many plans in Norway forced discussions about the role and results of planning. Protest came from people directly affected by plans and many others concerned about the environment. Planning was criticised for among other things, neglecting local interests and protection issues and for being authoritarian and directed from the top down. At the root of the criticism was a rejection of the prevailing politics and planning ideology. Demands for more democratic planning arose. Through experiments, partly initiated and encouraged by The Ministry of the Environment during the 1970s and 1980s, and extended process rules in the Planning and Building Act, the idea of public participation gradually emerged and became a commonly accepted part of plan preparation. The main picture is that planning in these years developed from an instrumental rationality into a more communicative approach, many plans were changed so that inhabitants could accept them, and public participation created innovative proposals. From the 1990s citizens' influence on planning became challenged by co-operation between developers and public agencies and by privately initiated local plans where great power lies in developers' hands. In this article the development of public participation in Norwegian physical planning is discussed. Some methods used and results achieved are analysed, illustrated with examples from practice. In the concluding part of the article some features of tomorrow's planning in Norway are discussed with regard to public participation and co-operation, and a proposal for stronger public control over the planning process is made.     

Open Concepts as Crystallization Points and Enablers of Discursive Configurations: The Case of the Innovation Campus in the Netherlands

In this paper, we reflect on the role of concepts in spatial planning as reproductive devices of discursive configurations. In contrast to instrumentalist interpretations of spatial concepts, we start from the idea that spatial planning concepts are inherently political. Building on post-structuralist strands of thought, we discuss the theoretical concepts of “empty signifier” and “master signifier” and instead, after analysis, put forward “open concepts”, in order to grasp the richness of meanings and functions of seemingly vague concepts. This manoeuvre allows us to analyse the trajectory and performance of the spatial concept of the “innovation campus” in the Netherlands. This, in turn, opens the door to an analysis of planning concepts as crystallization points and enablers of discursive configurations. The Dutch innovation campus is shown to be a result of a confluence of various national and international discourses, an open concept, flexible enough to enable the continuation of the planning game within the familiar set of coordinates. Because of the particular set of expectations associated with the innovation campus, promising structural change, it is bound to produce disappointment.     

SPACE,SCALE AND LOCALITY*

The importance of spatial variations for social behaviour has recently been re-established in social theory. But, paradoxically, space does not exist in the sense of being an object that can have properties and effects. How, then, are these two axioms to be reconciled? Recent attempts to solve this question have been centred around the concept of ‘locality’. In this paper we subject this concept to critical evaluation. First, we consider in abstract terms the way in which spatial variation affects social phenomena. Subsequently, we discuss the implications of this, focusing around the use of ‘locale’ and ‘local labour market’ as operationalisations of ‘locality’. Next, we review and comment on the debate on locality in the light of this discussion. The upshot is that locality is shown to provide an inadequate conceptual scheme for dealing with spatial patterning.     

Contested Spaces? The Use of Place Concepts to Communicate Visions for Peri-Urban Areas

In Dutch planning, there has always been an important role for spatial concepts. Their role has arguably changed with the recent decentralization of planning to the regional and local level. At the national level, guiding concepts of a more procedural nature have replaced the more substantive and place-based spatial concepts, leaving more room for regional and local interpretation. At the regional and local level, spatial concepts are still in use, but this seems to be in a more communicative, negotiating and developing role than before. In this paper, we analyse how place concepts are used to exercise power, mobilize recourses and frame meaning over the use of the peri-urban areas, in the changing Dutch planning context. This paper focuses on two competing place concepts for overlapping green urban fringe areas in The Hague Region, which have been promoted by different actor constellations and which represent different visions about the meaning of these peri-urban areas. The case study allows conclusions about the changing role of spatial concepts in Dutch spatial planning.     

Local Community Participation in the Planning Process: A Case of Bounded Communicative Rationality

The article contributes to the discussions of the relationships between planners and the local community, with a focus on the intervention of the planner in reaching reflexivity and just decisions. In spite of the commonly acknowledged phenomenon of local communities that protest against “unwanted” risk facilities, the principal contradiction in the problem formulation between their lifeworld and the structure of modern institutions has received little attention. This is the focus of the following case study, which explores the communicative activity of the local community within a planning process of mining in a new EU member state. In the theoretical section, I discuss the theory of Habermas to re-investigate the widely criticized foundations of communicative planning. I approach the statements of Habermas with the help of Luhmann to reveal that their different viewpoints may be complementary rather than oppositional. The empirical analysis focuses on the lifeworld of the affected community members and the decision-making process by institutions. The analysis reveals preconditions embedded deeply in the planning process that prevents community members from the introduction of their vision of the issue.     

Ambitions and realities in Norwegian regional planning

The article illustrates how regional planning processes in Norway are performed under the terms of the Planning and Building Act, considering the communicative turn in planning theory. It also analyses the coordination of nature management, regulated by the Nature Conservation Act, with regional planning and development. Discourse analysis is used and the story-lines, the discourse coalitions and the emblematic issues in planning and conservation are identified. It is concluded that planning in practice is quite different from the prevailing, theoretical understanding of regional planning. Nature management and regional planning are performed through separate, uncoordinated processes.