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The Routledge Handbook of Planning Theory

Michael Gunder, Ali Madanipour, Vanessa Watson

Strategic Planning

Publication details https://www.routledgehandbooks.com/doi/10.4324/9781315696072.ch3 Louis Albrechts Published online on: 23 Aug 2017

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Downloaded By: 10.3.98.104 At: 07:20 01 Oct 2021; For: 9781315696072, chapter3, 10.4324/9781315696072.ch3 approaches (seeAllmendinger andHaughton,2010:328).Withinthearchitectural/urbanism approaches areanintegralpart (seeSager,2013:xviii),aswellaneedforfreshideas and critical debatethatquestionsthe politicalandeconomicprocessesofwhichexistingplanning of awiderrangeactors.Itis thereforearguedthatspatialplanningisindesperateneed ofa scope ofplanning,approaches, useofskills,resources,knowledgebaseandtheinvolvement result, planningfacesmajorontological andepistemologicalchallenges.Thesemayinclude the lured toadoptanentrepreneurialstyleofplanninginorder toenhancecompetitiveness.Asa 2009: 618)andlimitsthescopeforgenuinelyinnovativedevelopment. Citygovernmentsare for moreelitistformsofpartnershipsandnetworks(Jessop,2000; AllmendingerandHaughton, competitiveness, mainlythroughthesubordinationofsocial policy toeconomicpolicy,allows such astheriseofneoliberalism.Therolloutneoliberalpolicy privilegesurbanandregional transformation narrativesbecomehegemonicbecausethey are inlinewithwiderdiscourses 2013:232).Some urban tability ofmarket-basedformspoliticalrationality(Haughton et al., concerned with pragmaticnegotiationsaround the immediate in acontextoftheseeming inevi spatial planningbecomeslessfocusedonthevisionaryandimagining theimpossible,andmore tensions ofrelationscoexistinginparticularplaces(Albrechts andBalducci,2013).Traditional traits thatarelackingincontemporarycities.Inthisway,theyfailtocapturethedynamicsand designed forsituationsofstability,certaintyandreasonableclarityproblemstobeaddressed, maintaining theexistingsocialorderratherthanchallengingandtransformingit.Theyare such as master plans and land-use plans, seem to be ineffective because their focus is often on as guidesforfindingreliablesolutionscomplexproblems.Statutoryplanninginstruments, cial systems. They argue that new principles, concepts and theories are required that can act the worldasraisingnewurbanquestionsinconnectionwithglobalizingmarketsandfinan to mobilityandsoon.SecchiViganó(2011)framethecurrentconditionofcitiesallover ing poverty,persistentinequality,environmentalissues(globalwarming,flooding),theright scale ofproblemsandchallengesthatplacesallovertheworldarenowfacing:involv the regulatorysystemtendtoremain.Thisiscauseforseriousconcerngivennatureand models ofthe1970s,andevenwherenatureplanshavechanged,basicprinciples In asurprisingnumberofcountries,planningsystemshavechangedlittlefromthetraditional STRATEGIC PLANNING Epistemological Challenges Ontological and Louis Albrechts Introduction 3 28 - - - Downloaded By: 10.3.98.104 At: 07:20 01 Oct 2021; For: 9781315696072, chapter3, 10.4324/9781315696072.ch3 in practice. 2017)andmyexperience dissection ofplanningprocessesallovertheworld(Albrechtset al., 2013;Albrechts, 2013,2015),a 2011;Haughtonet al., 2009; Gonzáles,2011;Balducciet al., explain the strategic nature of planning. I hereby rely on theoretical literature (Healey, 1997a, ning, itsaims,logicandsomecritiques.InasecondpartIfocusonfourdimensionsthataimto UN-Habitat, 2009;Gonzáles,2011).Thischapterfocusesfirstontherootsofstrategicplan- al.,1997;Albrechts,1999;Salet andFaludi,2000;Borja,Tibaijuka,2005, Healey et Barcelona modelandUN-Habitat,inLatin-AmericaAfrica(seeBorjaCastells,1997; and regionsbecamefashionable in ,Australiaand,mainlythroughthe impact ofthe strategic planningcomponent. small-scale interventions to upgrade neighborhoods and improve the image of the , and a The influential Barcelona model provides a link between an urban design component involving and representationstorevealqualitiesofexistingspacesplacestheirpossiblefutures. 2010). Inthisapproachurbandesign,asaninstrumenttoanalyzeandreadplaces,usesimages knowledge, designoperationsprovideaspecificandoriginalbodyofknowledge(seeViganó, as theFrench‘Projetdeville’(seeSecchi,1986).Inadditiontotraditionalsectoralandtechnical (mainly urban)projects–especiallyfortherevivalofrundownpartscitiesandregionssuch discipline anapproachtoland-useregulationemergedthroughanewgenerationofstrategic of externaltrendsandforces, theactiveinvolvementofseniorlevelmanagers,toconstruct external) stakeholders(preferably keydecisionmakers).Moreover,hestressestheimportance (Kaufman andJacobs,1987). Bryson (1995)stressestheneedtogatherkey(internal and US werecalledupontousethe strategicplanningapproachdevelopedinthecorporateworld strength andpersistenceofthe action.Intheearly1980s,stateandlocalgovernmentsin the is on accurate understanding of the real situation, realistic goals, focused orientation of available The wordstrategy has itsrootswithinamilitary context (see SunTzu,1994[500 on itshistory,logic,aimsandcritiquesformulated. different traditions/originsleaveamarkonthewaystrategic planningisappliedIreflectbriefly ning, generallyspeaking,therearedifferenttraditionsofstrategic spatialplanningandasthese 2003).Justasinplan some cases,ofconstructinganewgovernanceculture(Albrechts et al., action frameworksandinterpretativeimagescapableofmobilizing peopletoactionand,in this way,strategicplanningdeploysoneofitsmostinteresting potentials,itscapacitytoproduce ture investmentsandprinciplesoflanduseregulation’(seeHealey,2000:46).Interpretedin translate the result into priorities for area investment, conservation measures, strategic infrastruc as ‘self-consciouscollectiveeffortstore-imagineacity,urbanregionorwiderterritoryand new ideas and building processes that can carrythem forward. Strategic planning is looked upon (Healey, 1997a:5).ForHealey(1997a)strategicplanningprovidesanopportunityforbuilding plan-making processesanddevelopcontentsstrategiesforthemanagementofspatialchange’ which arangeofpeopleindiverseinstitutionalrelationsandpositionscometogethertodesign has graduallydevelopedadefinition.Shedefinesstrategicplanningas:‘asocialprocessthrough 2011), Patsy Healey,togetherwithotherauthors(seeAlbrechts,2001,2004;Balducciet al., In the1990s,strategicapproaches,frameworks,andperspectivesforcities,city-regions, Strategic S patial Planning:History,Logic,Aims,Critique Strategic Planning Strategic History 29 bc]). Thefocus - - Downloaded By: 10.3.98.104 At: 07:20 01 Oct 2021; For: 9781315696072, chapter3, 10.4324/9781315696072.ch3 Borja, 2000;Gonzáles,2011)becameveryinfluential.StrategicplanninginBarcelona these ideasandpracticesstartedtotravel.TheBarcelonamodel(seeBorjaCastells,1997; UN-Habitat, 2009;AlbrechtsandBalducci,2013;Balducciet al., 2011).Itisnotsurprisingthat planning (Healey,1997a,1997b,2006,2007;Albrechts,2004,2013,2015;Tibaijuka,2005; suggest that strategic could provide an answer to the shortcomings of statutory porate stance.Inthe1990sagrowingliteratureandanincreasingnumberofpracticesseemto definition ofstrategicplanningdevelopedthatisclearlydifferentfromthemilitaryandcor for therevivalofrundownpartscitiesandregions,onland-useregulations.Graduallya the focusofurbanandregionalplanningpracticeswasonprojects(Secchi,1986),especially view progress assomething which, if it happens, cannot be planned (Healey, 1997a). Instead, conservative disdainforplanning,butalsobypostmodernistskepticism,bothofwhichtendto In the1980saretreatfromstrategicplanningcanbewitnessed,fuelednotonlybyneo countries evolvedtowardasystemofcomprehensiveplanningatdifferentadministrativelevels. a longertermvision.Inthe1960sand1970sstrategicspatialplanninginnumberofWestern gic planning (Albrechts, 2013, 2015). It is based on dealing with structural issues, co-production line withRancière),ademand for transformativepracticesleadstoacallmoreradicalstrate strengthened publicaccountability’ (UN-Habitat,2009:61–62). vices at the urban level. It made available indicators for monitoring the strategic plan and, thus, identify theactionstotake‘in order toimprovelivingconditionsandaccessbasicsocial ser tion oftheMDGsaturbanlevel.Theapproachmadeit possibletoacquireinformation indicators ofobjectives.Itgaveanunderstandingtherealities andtrendsintheimplementa planning’. Theapproachmadeavailableastrategicspatialframework withtimehorizonsand within planningmadeitpossibletorectifycertainmajorshortcomings encounteredinmaster strategic plansbasedonthe With support from UN-Habitat and the African Network of Urban Management Institutions, In a2009publication,UN-Habitatstressesthat Here thestrategicapproach and action guide) UN-Habitat promotes local economic development through strategic planning. and reflectonthefuture(Borja,2000).In2005,infourvolumes(quickguide,manual,toolkit promote or legitimizepublic and mixed projects and programs,contribute to their coherence, social andlabororganizations,professionalacademicsectorsareequal.Ithasservedto limited tocreatinganenvironmentofcivicdebateinwhichtheeconomicactors,publicentities, As a result of a reawakening of ‘the political’ based on equality (see Swyngedouw, 2014 in As aresultofreawakening ‘thepolitical’basedonequality(seeSwyngedouw,2014in coordination. Newinstitutionalrelationshipsmustevolveto dothis. ning isnotjustaboutthefunctionaluseofland),andplan itselfcannotachievethis and integrationofpolicyideasline-functiondepartments is essential(becauseplan strategic spatialplanningalsohasacrucialinstitutionaldimension.…Coordination quality oflifeintheircities,townsandsettlements. achieve. Thisispossibleonlywhenvariousactorsjoinforcestomakeadifferencein capital towardsthecommonvision,goalsandobjectivesthatcommunityaspiresto It demandsharnessingandmobilizingthelocalhuman,social,financialnatural implies carefulconsiderationofthevarioustrade-offsandmakingdifficultchoices. Millennium DevelopmentGoals Louis Albrechts Louis 30 were drawnup.‘IntegratingtheMDGs (UN-Habitat, 2009:61) (Tibaijuka, 2005:iii) 1 hasbeen ------Downloaded By: 10.3.98.104 At: 07:20 01 Oct 2021; For: 9781315696072, chapter3, 10.4324/9781315696072.ch3 sites andpropertiesaredeveloped’ (seeVigaret al.,2005:1408). locales withinitandofdefining thelegalandspatialparameterswithinwhichrightstodevelop words ‘statutoryplans serve thepurposeofboth generatingaconceptionofplace and the 2017).Soinother ments toobtainbuildingpermits(seedifferentchaptersinAlbrechts et al., administrative boundaries;andthefactthatstatutoryplansserve only(mainly)asbindingdocu- flexibility; itsviewofspaceasacontainerthatholdsobjectsinside withdistinctivephysicaland eration; therigidityofplanningmethods;itsincapabilityto dealwithuncertaintyandtackle Statutory planning is blamed for the lack of political, economic and environmental consid- all constitutenot onlyepistemologicalchallenges butalsofundamentalontological issues. projects anddistributivejustice, fromplacesascontainerstowardmanyspace-timegeographies, hensive toselective,frommasterplans andland-useplanstoprobesofthefuture,strategies, knowledge, andhowtointroducetransformativepractices(see Albrechts,2010) Concern is raised about the legitimation of strategic spatial planning, the role of expertise and tial view of the relationships between visioning, action, structure, institutions and discourse. materialize, the lack of concern about the path dependency of the resources, a too sequen 2010). Monno(2010)andMoulaert(2011)questiontheconditionsunderwhichvisionswould groundings and they point at its weakness in theoretical underpinnings (Newman, 2008; Monno, ask whetheractuallyexistingpracticesofstrategicspatialplanningreallyfollowtheirnormative strategic planning,intermsofimprovementthequalityplaces,havebeenmodest.They nology ofstrategicplanning(seeLealdeOliveira,2000a).Othercriticsarguethattheresults discourses ofneoliberalism(seeOlesen,2011).Someattackthemilitaristicandcorporatetermi questions areraisedwhetherstrategicspatialplanningpracticesabletoresistthehegemonic Magazine (bothavailableonPlannersNetwork( (2000a) betweenBorjaandFabricioLealdeOliveira,CarlosB.Vainerin Leal deOliveira(2000a)onstrategicplanninginRioJaneiro;seealsotheinterestingexchange between theriseofstrategicspatialplanningandstrengthenedneoliberalpoliticalclimate(see plans andactionsbasedontheseplans?Economic,politicalideologicalcritiquesdrawalink knowledge) relevantfor a morerelationalapproachtostrategic planning reflectedin strategic of knowledge(tacit/experientiallocalcommunitiesversustraditionalscientific many space-timegeographiesisreflectedinstrategicspatialplanning?Howarethedifferenttypes extent theshiftfromaEuclideanconceptofstableentitiestowardnon-Euclidean the ontologyandepistemologyofstrategicplanning.Questionsareraisedonhowtowhat of thestrategicspatialplanningapproach(Albrechts,2015).Somecriticismsarerelatedto articulated onstrategicplanning(Metzger,2012).Thecritiquesfocusverydifferentregisters more openmulti-leveltypeofgovernance. It aimstoenhanceaction-orientationbeyondtheideaofplanningascontrolandpromotea resource protection,forsustainabledevelopment,spatialquality,sustainability,equity,etc.). coordinated visionandtoframeanintegratedlong-termspatiallogic(forland-useregulation,for as demonstratedinitshistory–havetypicallybeen:toconstructachallenging,coherentand The motivationsforusingstrategicspatialplanninginpracticevary.However,theobjectives– as apoliticalstrategy flicts andlegitimacy. The shiftsfromcontroltoframing, fromanextendedpresenttobecoming,compre Most strategic planning processes react against perceived shortcomings of statutory planning. Despite a certain popularity of strategic spatial planning, one cannot be blind to the critique Despite acertainpopularityofstrategicspatialplanning,onecannotbeblindtothecritique 2 andinthiswayasabasefordemocraticengagement,workingwithcon Logic, AimsandCritiques Strategic Planning Strategic 31 www.plannersnetwork.org/)). In this respect www.plannersnetwork.org/)). Inthisrespect Progressive Planning Progressive Planning . - - - -

Downloaded By: 10.3.98.104 At: 07:20 01 Oct 2021; For: 9781315696072, chapter3, 10.4324/9781315696072.ch3 relational nature,andlegitimacy. to fourrelevantdimensions:content-andcontext-related,visioningembeddedinbecoming, planning (seeHealey,2009;AlbrechtsandBalducci,2013;et al., 2017).Theybelong a setofinherentfeaturesthatareconsideredessentialtotheidentityandfunctioningstrategic power, longtermandshortterm.Inthenextparagraphstheseelementsaredefinedaccordingto and areviseddemocratictradition,valuesfacts,selectivityintegrativity,equality and theprivate.Ithasafocusonvisionaction,localglobal,legitimacy lective. Itinvolvestheplannedandlearned,socioeconomicpolitical,public content and process, statics and dynamics, constraints and aspiration, the cognitive and the col- The theoryandpracticesofstrategicplanningdemonstratethatinvolves promotion andcompetitiverestructuring(seeSwyngedouw et al., 2002:572). toward moremarket-orientedandmarket-dependentapproaches aimedatpursuingeconomic a neoliberalshiftfromdistributivepolicies,welfareconsiderations anddirectserviceprovision urban projects(seealsoGonzáles,2011:1412).Such havebecomeakeycomponentof up inRiodeJaneiroadoorformorecorporate-friendlystrategic planningtechniquesandmega implemented. ForLealdeOliveira(2000b)andVainer(2000) theBarcelonamodelhasopened models are sometimes reimagined as smoke screens behind which agendas of privatization are works ofexistingplanningtools(seeHealeyandUpton,2010). Practicesillustratethatdominant that promise to solvesome problems and canbe implemented or reinterpreted within the frame those aspectsoftheapproachthatbestfittheirownsituation.This mightbeachoiceforelements change (seeSorensen,2010:133).Actorsinterpretstrategicplanningdifferentlyandwilladopt which relevantactorscanseeanopportunitytousestrategicplanningpushforwardapolicy approach anddeployit.Theinfluenceisnotdirect,butworksthroughmultipleprocessesin described as‘policyentrepreneurs’(achampionintheterminologyofBryson,1995)totake planning doesnotdoanyworkonitsown.Itneedschangeagents,whatKingdon(2003)has to travelintodifferentcontextschangeandbechangedbythedominantculture.Strategic of planningsystemstoimplementthechosenstrategies.Newideasandconceptsneedbeable political systemitself,butalsoontheconditionsunderlyingit.Theseaffectability spatial planningsystemtodeliverthedesiredoutcomesisdependentnotonlyonlegal- institutional contextandissensitivetospecificintellectualtraditions.Thecapacityofastrategic and Richardson,2012:1690;UN-Habitat,2009)strategicplanningneedsaspecificpolitical but alsotakesformandundergoeschangesintheprocess(seeDyrberg,1997).Forsome(Olesen Huxley andYiftachel,2000:339).Thecontextformsthesettingofstrategicplanningprocess (leading) discoursesandtheconstraintsofamore-of-the-sameattitude(seealsoproposition4by Strategic spatialplanningneedsacontextualunderstandingofpowerandmaterialinterests, is notonlyanepistemological challenge,butalsoafundamentallyontologicalissue(Metzger, The questionconcerningwho istobeconsideredanactorinaparticularcontextorsituation seek toreabsorbsuchdemands into adistributiveframeworkontheother(seeYoung,1990: 90). empowerment ofcitizenson the onehandandestablishedinstitutionsstructures that in thedialecticbetweenmovements thatseekdemocratization,collectivedecision-making and A challengeincontemporarygovernance –andbyextensioninstrategicplanningconsists Potential CriticalFeaturesExplainingtheStrategicNatureofPlanning Context- andContent-Related Political andInstitutionalContext Louis Albrechts Louis 32 -

Downloaded By: 10.3.98.104 At: 07:20 01 Oct 2021; For: 9781315696072, chapter3, 10.4324/9781315696072.ch3 partnerships andconsultativeprocesses(Albrechtset al.,2001,2003;Healey1997). to attemptswidentherangeofactorsinvolvedinpolicyprocesses,withnewalliances,actor strategic planningfornewscalesofpolicyarticulationandconceptsisalsolinked entrepreneurs, culturalorganizations,civicassociations,consumerorganizations.Thesearchof departments, agencies,banks,universities,chambersofcommerce,tradeunions,associations 2000; Albrechts,2006;Albrechtsetal.,2017):city,regional,andnationalgovernments,sector 2012: 782). One can find a very wide variety of actors in strategic planning practices (Vainer, • • • The focusonbecomingproducesquiteadifferentpicturefrom traditionalplanningintermsof: formance, strategic spatial plans are judged in terms of performance (Mastop and Faludi, 1997). feedback, adjustmentandrevision.Wheretraditionalspatial plansarejudgedintermsofcon mentation by framing decisions, actions and projects. It incorporates monitoring, evaluation, Strategic spatial planning, both in the short and the long term, focuses on results and imple- synthetic long-termvisions. the overallpicturethatinspireschoicesisnotgivenbyacomprehensive analysis,butratherby a purelyinstrumentalsense,forcopingwithandimplementing suchends.Instrategicplanning, relate toenvisionedagreed-uponendsandtheselectionofmostappropriatemeans,notin potential. Thus,strategicplanninginvolveschoice,valuation,judgment,anddecisionsthat for thepurposeofproducingfair,structuralresponsestoproblems,challenges,aspirations,and is inherentlypoliticalinnature,liesmakingtoughdecisionsaboutwhatmostimportant Strategic spatialplanningdefinesissuesandshapesactionsasaresult.Muchoftheprocess,which tional more-than-humanperspectivesasawaytobroadentheconceptsused(seeMetzger,2014). broaden thescopeofpossibleandimagineimpossible.Thisimpliesdevelopmentrela legal status–inaclosedsystem,thepoliticalpotentialofstrategicplanningliesitsdimensionto and afairdistributionofthejoysburdens.Wherestatutoryplanningendsup–asresultits place whilefocusingonlocalassetsandnetworksinaglobalcontext,socialjustice,spatialquality, become (Albrechts,2001,2004).Visionsandconcreteactionsmustacceptthefullcomplexityofa actions, andthemeansforimplementationthatshapeframewhataplaceisitmight process strategicplanningproducesvisionsorframesofreference,thejustificationforcoherent what spatialquality,equity,accountability,legitimacyare?Asatransformative defines andusesthem.Whoconcretelythevisions,strategies,actions? to crucialpolitical(andbyextensionstrategicplanning)conceptsitdependsonwhointerprets, power isabletodeterminethecontentofconceptsandwords(Schmitt,1988:202).Withregard One ofthemostimportantmanifestationslegalandspirituallifeisfactthatwhoeverhastrue • • • governance. Type ofgovernance:government-ledversus butco-productiveformsof the unknown;seeAlbrechts,2006) versustechnicalorlegalregulation. Type ofplanning Products: strategicplans/policies,frames, strategiesversusmasterplansorland-useplans. : providingframeworksandjustification forspecificactions(ageographyof Strategic Planning Strategic Selectivity Content Output 33 - - Downloaded By: 10.3.98.104 At: 07:20 01 Oct 2021; For: 9781315696072, chapter3, 10.4324/9781315696072.ch3 and practices,thusprovidingabasisforstructuralchange. this way,newdiscoursescanbecomeinstitutionalized,i.e.,embeddedinthenorms,attitudes tion’ becomesperhapsmoreimportantthantheplanassuch(Hajer,1995;Albrechts,1999).In In someplaces,theprocessof‘discoursestructuralization’anditssubsequent‘institutionaliza practice (see Healey, 2004: 46). Strategic planning becomes the activity whereby (taking structural practice (seeHealey,2004:46). Strategicplanningbecomestheactivitywhereby(takingstructural A frame is the way people see an issue,a problem, a situation, a challenge,an opportunity or a tial planningprocess.Becoming produces,inanon-linearway,visionsandframes of reference. emergence (seeChia,1995:601). Itexpressesverywellthedynamicnatureofstrategic spa Becoming emphasizesactions, movements,relationships,conflicts,process,evolvement and structed, andinventedthroughcollectiveexperience(seeFoucault, 1980:11;Hillier,1999). given meaningandvalidatedbythetraditionsofbeliefpractice. Theyarereviewed,recon ety wantstoachievearenotgeneratedinisolation,butrather aresociallyconstructedand be confinedtoasingleactororinstitutionintheprocess.The valuesandimagesofwhatasoci just thedestination,andasvisionsaresocentraltotransformation andsoallinvasive,itcannot the creativityofdesignalternativefutures.Sinceenvisioning isalsothejourneyandnot or thinktheyshouldlivein.Togettotheseideas,itneedsboth thesolidityofanalysisand spatial quality,virtues,andvaluesisawayofdescribingthetype ofplacecitizenswanttolivein, spatial quality, inclusiveness, accountability) that the present lacks. Speaking of sustainability, must symbolizesomegood,qualities,andvirtues(diversity,sustainability,equity, possible withuncertainty,anditenablesactorstoopenupthespectrumofpossibilities.Visions to presentideasandconceptsthataresolid,workable,oftestablevalue.Itworksaswell Envisioning is a process that creates desired futures and then moves back to what is as it wants that strategicplanningimpliesamovefromepisodictocontinuouschange(Kotter,2008:17). planning processshouldnotmaximizeshort-termresultsattheexpenseoffuture.Itmeans haul andneededtohelptestvisionsagainstconcreteconditions(Kotter,1996).But,astrategic short-term resultsareneededtobuildthecredibilitysustaineffortsoverlong within a reasonable period of time, that the process is producing acceptable results. Therefore, (Hillier, 2002).Mostactorswillnotgoonthelongmarchunlesstheyseecompellingevidence, citizens, communityorganizations,privatecorporations,developersandpublicdepartments) nections betweenpoliticalauthoritiesandimplementationactors(planningofficers,individual affected publics(BrysonandCrosby,1992:296).Thisstressestheneedtofindeffectivecon a policyisinpractice,whatitdoesandwhy–fromthepointofviewvarious grams, actions(short,mediumandlongterm),decisionsresourceallocationthatdefinewhat action andimplementation.Thisisseenasthepatternofpurposes,policystatements,plans,pro- and challengesorjusttosomethingaplacewantsachieve.Strategicspatialplanningrelates Traditional spatialplanningisconcernedwiththeproductionofplansasareactiontoproblems Strategic PlanningIsAction-orProject-Oriented Visioning EmbeddedinBecoming Louis Albrechts Louis Envisioning Becoming 34 - - - - -

Downloaded By: 10.3.98.104 At: 07:20 01 Oct 2021; For: 9781315696072, chapter3, 10.4324/9781315696072.ch3 say, differentprofessionalcodesorlocalnorms–(ChiaandHolt,2006:649). identification anduseofmaterialassets,butalsoonanawarenessdivergentunderstandings,– an interconnectingsetofshiftingrelationsinwhichactionisundertakennotonlybasedonthe 2007: 1).Thisimpliesthattheobjectssocietyengageswitharenotthings,butrather and valuesco-exist,interact,combine,conflict,oppressgeneratecreativesynergy(Healey, complex mixtureofnodesandnetworks,placesflows,inwhichmultiplerelations,activities gies thattreattheterritoryofurbannotjustasacontainerinwhichthingshappen,but of existingbutperhapsunconsciousinterestsinthefatetheircity.Henceapleaforstrate their lives,theywillbeabletodiscoverlayersofstakes(Healey,1997b:69,91–92)thatconsist a globalcontext.Ifplanners,politiciansandcitizensreflectuponthecityinwhichtheylive tural, andintellectual,includingphysicalsocialqualitiesoftheurbanorregionaltissue)in Therefore, strategicspatialplanningfocusesonplace-specificqualitiesandassets(social,cul region’ and‘theintermsofaone-dimensionalhierarchyscales(Healey,2007:267). It isimpossibletounderstandmaterialplacesandsocialnodessuchas‘thecity’,city- change overpersistenceandnoveltycontinuity(Chia,2002:866). imposed forthepurposeofchangingwhatisintoitmightbecome.Becomingprivileges constraints intoaccount)thatwhichmightbecomeisimposedonis,andit The strategicprobingoffuture uncertaintiesframesthefixingofcertaintiesinpresent. in ordertomakemoreintelligent andinformeddecisionsinthepresent(Friedmann,2004: 56). prospective changeandinencouraging publicdebatesonthem.Itisawayofprobingthefuture the productionofplansthemselves (notevenstrategicones)butontheproductionofinsights of (2004: 56)hearguesthat,asa consequence,theobjectofstrategicplanningshouldnotbe on a planningframingthestatutory-strategicrelationship itself.InlinewithFriedmann 51) identifiesstrategicplanningnotonlyasdistinct from statutoryplanningbutalsoas problem. So,insteadofdetachingstrategicplanningfromstatutory planningMäntysalo(2013: from thestatutoryplanningsystemintoaparallelinformal wouldposeaseriouslegitimacy Mazza (2011,2013)andMäntysalo(2013)thepossibledetachment ofstrategicspatialplanning but alsoasubstantiveproblem(thelinkbetweenstrategicplanning andstatutoryplanning).For processes (seeMazza,2013:40).Legitimacyisnotonlyaprocedural problem(whodecides) As (mainly)non-statutoryprocesses,questionsareraisedonthe legitimacyofstrategicplanning down from the global, continental, national or regional level, and up from the municipal level. As theseagendashaveavariablereach,theyalsocarrypotentialforrescalingofissue of integratingdifferentagendas(economic,environmental,cultural,social,andpolicyagendas). Watson, 2011).Thefocusonthespatialrelationsofterritoriesallowsforamoreeffectiveway in theconstructionofaplaceandsocietyatlarge(seealsoHolston,1995;Yiftachel,2006; They providenewkindsofpracticesandnarrativesaboutbelongingtobeinginvolved fundamental socio-spatialrelations,about‘thinkingwithoutfrontiers’(Friedmann,2011:69). co-located (Healey,2004:46).Placesbecomeboththetextandcontextofnewdebatesabout and networksinanarea;significantintersectionsnodesareathatarephysically tion andmanagementofspecialplacessites;theinterrelationsbetweendifferentactivities The termspatialbringsintofocusthewhereofthings,whetherstaticordynamic;crea Relational inNature Strategic Planning Strategic Legitimacy 35 - - -

Downloaded By: 10.3.98.104 At: 07:20 01 Oct 2021; For: 9781315696072, chapter3, 10.4324/9781315696072.ch3 2009; Moulaert,2011:84;VanDyck,2011). both catalysts and outcome of struggle between claims over physical space (Mitlin, 2008; Roy, cal strategicplanninghasafocusonsocialspace.Inspacesociallyinnovativerelationsare Besides theobvious‘physical’spaceneededtoimplementprojects,strategiesandpolicies,radi and innovativeforceitscapacitytodeliverpositiveoutcomesactuallygainbenefits. mandate, inradicalstrategicplanninglegitimacymightcomefromitsperformanceasacreative it isuniversal(seeLyotard,1992:50).So,apartfromlegitimacystemmingarepresentative is, anideatorealize.This(ofequity,fairness,socialjustice)haslegitimatingvaluebecause grounds thislegitimacynotinanoriginalfoundingactbutafuturetobebroughtabout,that political institutionsandpractices,formsoflegislation,ethics,modesthoughtsymbols.It planning isanarrativeofemancipation.Itfulfillslegitimatingfunction.legitimatessocialand (see Žižek,1992:163abouttheverynotionofdemocracy).Thenarrativeradicalstrategic it. Itaddstothefullnessofconcretehumancontent,genuinenesscommunitylinks a moreradicalstrategicplanningdoesnotrejectrepresentativedemocracybutcomplements becoming inanewcontextandrelationtoissuesathandthenwemayconcludethat we acceptthatrepresentativedemocracyisnotasinglecompletedthingbutitcapableof It isclearthattherepresentativegovernmentarticulatesmerelypoliticalandnotallvalues.If of politicalinstitutionsasitreversesandupsetstherelationshipbetweenstateitscitizens. cracks inthesystemtorealizeitsobjectives.Itcanbelookeduponasanattackonlegitimacy or (partial)(dis)agreementbetweenthekeyactors. term actions,abudget,andflexiblestrategiesforimplementation.Itconstitutescommitment dynamic, integrated,andindicativelong-termvisions(frames),plansforshort-termlong- of themainprocessesandstructuralconstraintsshapingourplaces.Thiscaninformrealistic, range blueprintsforinvestment).Forotherstheendproductmightconsistofacriticalanalysis for strategicplanning in Australiaata metropolitan scalewhich often tendstobea set oflong- a structuralantidoteagainstmarkedstandardization(seeSartorio,2005;seealsoHillier(2013) The non-statutorycharacterofmoststrategicplanningexperiencesseems,forsome,toactas continual elaboration ofthenew,openness ofthings(seeGrosz,1999:28). Thischallenges provide strategicplanningprocesses withawayofseeingthefutureasboundup the tion (durée) and virtuality. Duration,asthe unified flow of time or becoming, and virtuality With thefocusonnon-linear temporalities alinkcanbedrawntoBergson’sconceptsofdura becoming, legitimacy),onthe pathdependencyofresourcesandonspace-timegeographies. terms (equity,socialjustice)(Moulaert,2011:82). to widerforcesbutanactiveforceinenablingchange(see Sager, 2013)accordingtospecific least fortheprotagonistsofamoreradicalstrategicplanning – isnotjustacontingentresponse edge, skills and expertise (see Swyngedouw, 2014). It implies that strategic spatial planning – at strategic planningbytranslating(potential)politicalissuesinto questionsoftechnicalknowl to changetheperspectiveofstrategicplanningandmoveaway fromthetrendtodepoliticize tional boundariesoftheory,profession,planninglawsandregulations. Underlyingistheneed to play a role intackling the challenges the revisit will take strategic planning beyond its tradi strategic planning.Thecritiquesmentionedearliermakeitclear thatifstrategicplanningwants as wellforstrategicplanningpractices.Theyalsoprovide someingredientsforrevisiting The fourdimensionsmentionedearliercoverthemajorchallenges forstrategicplanningtheory More radicalstrategicplanningentersintoconflictwithpoliticalregimesandhastolookfor Revisiting strategicplanningrequires anin-depthreflectiononkeyconcepts(envisioning, What Next? Louis Albrechts Louis 36 - - - -

Downloaded By: 10.3.98.104 At: 07:20 01 Oct 2021; For: 9781315696072, chapter3, 10.4324/9781315696072.ch3 challenge theestablishedinstitutionsandstructuresaimsforashiftinpowerrelations. and empowermentofcitizens–co-production(seeMitlin,2008;Roy,2009;Watson,2014) The call forconstructinga new governanceculturethroughamorecollectivedecision-making this relatestolocalsocial,economic,politicalandpowerdynamics(seealsoHealey,2010:14). power ofstrategicandstatutoryplanningagencies,whatnetworksareinplayhow the contextualfactors(political,institutional,legal),somegraspofwhokeyactorsare,sizeand scale. Everysituation in which strategic planning iscarriedout needs some understanding of agendas downfromtheglobal,city-region,regionandupmunicipal/neighborhood geographies (ageographyoftheunknown;Albrechts,2006)stressneedforrescalingissue ers, citizenswithprobingfutures?Howtocombineflexibilityrobustness?Newspace-time uncertainties forthoseinvolvedintheprocess.Howtocombineprovidingcertainty for develop communities) withthecreativityofdesignalternative(evenimpossible)futures.Itraises the combinationofknowledge(traditionalscientific,tacit/experientiallocal Ajuntament de Barcelona. 2004. 2 1 Albrechts, L.2004.Strategic(spatial)planningreexamined. Albrechts, L.2001.Fromtraditionallanduseplanningtostrategicspatialplanning:thecaseofFlanders. Albrechts, L.1999.Plannersascatalystsandinitiatorsofchange:TheNewStructurePlanforFlanders. Albrechts, L.2006.Shiftsinstrategicspatialplanning?Someevidence fromEuropeandAustralia. Albrechts, L.,Alden,J.andDaRosaPires,A.(Eds)2001. Albrechts, L.2015.Ingredientsforamoreradicalstrategicspatial planning. EnvironmentandPlanningB, Albrechts, L.2013.Reframingstrategicspatialplanningbyusing acoproductionperspective.Planning Albrechts, L.2010.Moreof the same is notenough! How could strategic spatial planningbe instrumental in Albrechts, L., Balducci, A. and Hillier, J. (Eds) 2017. Albrechts, L. and Balducci,A.2013. Practicing strategicplanning:In search of critical features toexplain Albrechts, L.,Healey,P.andKunzmann, K.2003.Strategicspatialplanningandregionalgovernance in

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