PLANNING FOR COMPLEX MODERNITY: THE TURKISH CASE by CEVDET YILMAZ In Partial Fullfillment of the Requirements for the Degree of DOCTOR OF PHILOSOPHY IN POLITICAL SCIENCE AND PUBLIC ADMINISTRATION in The Department of Political Science and Public Administration Bilkent University Ankara January, 2003 PLANNING FOR COMPLEX MODERNITY: THE TURKISH CASE The Institute of Economic and Social Sciences of Bilkent University by CEVDET YILMAZ In Partial Fullfillment of the Requirements for the Degree of DOCTOR OF PHILOSOPHY IN POLITICAL SCIENCE AND PUBLIC ADMINISTRATION in THE DEPARTMENT OF POLITICAL SCIENCE AND PUBLIC ADMINISTRATION BILKENT UNIVERSITY ANKARA January, 2003 I certify that I have read this thesis and in my opinion it is fully adequate, in scope and in quality, as a thesis for the degree of Doctor of Philosophy in Political Science and Public Administration. .................................. Assoc. Prof. Dr. Emin Fuat Keyman Supervisor I certify that I have read this thesis and in my opinion it is fully adequate, in scope and in quality, as a thesis for the degree of Doctor of Philosophy in Political Science and Public Administration. .................................. Assoc. Prof. Dr. Ahmet İçduygu Examining Committee Member I certify that I have read this thesis and in my opinion it is fully adequate, in scope and in quality, as a thesis for the degree of Doctor of Philosophy in Political Science and Public Administration. .................................. Assist. Prof. Dr. Ömer Faruk Gençkaya Examining Committee Member I certify that I have read this thesis and in my opinion it is fully adequate, in scope and in quality, as a thesis for the degree of Doctor of Philosophy in Political Science and Public Administration. .................................. Assist. Prof. Dr. Mehmet Kalpaklı Examining Committee Member I certify that I have read this thesis and in my opinion it is fully adequate, in scope and in quality, as a thesis for the degree of Doctor of Philosophy in Political Science and Public Administration. .................................. Assist. Prof. Dr. Galip Yalman Examining Committee Member Approval of the Institute of Economics and Social Sciences .................................. Prof. Dr. Kürşat Aydoğan Director ABSTRACT PLANNING FOR COMPLEX MODERNITY: THE TURKISH CASE Cevdet Yılmaz Department of Political Science and Public Administration Supervisor: Associate Professor E. Fuat Keyman January, 2003 This thesis investigates the relationship between planning and modernity, follows the evolution of conventional planning within epistemological shifts and globalization processes, and searches for a communicative planning alternative for Turkey on the background of Turkish planning experience within the broader context of Turkish modernization and democratization. Conventional planning for national development took shape in the context of simple modernity characterized by positivist social science, nation state and capitalism. It is state and expert centered, and based upon instrumental rationality. Parallel to new epistemological debates and globalization processes, conventional planning has gone into a crisis. Today, there is a “communicative turn” in planning theory that entails competition among multiple rationalities within a broader and multi-layered public sphere. As a developing country that has used planning extensively in its modernization process, Turkey faces a similar crisis in planning. Conventional planning in Turkey reached to its limits towards the end of 1970s. However, neo- liberal discourse, replacing planning since 1980, could not deliver to the mounting problems of efficiency and democracy either. In that context, Turkey needs to go beyond a simple market versus state dichotomy and should generate a genuine communicative planning in its development process. Based upon global trends in planning theory and the Turkish planning experience over the 20th century, communicative planning is emerging as a real possibility in Turkey. With its long experience in multi-party democracy and recent democratization impetus accelerated by its candidacy for full membership into the EU, Turkey can be one of the pioneering countries in the developing world, if it achieves communicative planning. Bringing the state, market and civil society representatives together, communicative planning can enrich information basis of planning, restore legitimacy of plans in political and social domains, and thus, increase the possibility of successful implementation of plans. Keywords: Complex Modernity, Globalization, Communicative Planning, Turkish Planning iii ÖZET KOMPLEKS MODERNİTE İÇİN PLANLAMA: TÜRKİYE ÖRNEĞİ Cevdet Yılmaz Siyaset Bilimi ve Kamu Yönetimi Bölümü Tez Yöneticisi: Doç. Dr. E. Fuat Keyman Ocak, 2003 Bu tez planlama ve modernite ilişkisini incelemekte, epistemolojik kaymalar ve küreselleşme süreçleri içinde geleneksel planlamanın evrimini izlemekte, Türk modernleşmesi ve demokratikleşmesinin geniş bağlamında ele alınan Türk planlama tecrübesi temelinde Türkiye için iletişime dayalı bir planlama alternatifi aramaktadır. Ulusal kalkınma için geleneksel planlama, positivist sosyal bilim, ulus devlet ve kapitalizm üçgeninde tanımlanan basit modernite bağlamında şekillenmiştir. Bu planlama yaklaşımı devlet ve uzman merkezlidir ve araçsal akla dayanır. Yeni epistemolojik tartışmalara ve küreselleşme süreçlerine parallel olarak geleneksel planlama krize girmiştir. Günümüzde planlama teorisinde “iletişimsel dönüş” yaşanmakta olup, bu dönüş daha geniş ve çok katmanlı bir kamusal alanda çeşitli rasyonaliteler arasında rekabeti gerektirmektedir. Planlamayı modernleşme sürecinde geniş ölçüde kullanan, gelişme yolundaki bir ülke olarak Türkiye de planlamada benzer bir kriz yaşamaktadır. Geleneksel planlama Türkiye’de 1970’lerin sonlarında bitme noktasına gelmiştir. Ancak, 1980’den beri planlamanın yerini almış olan neo- liberal söylem de Türkiye’nin giderek artan etkinlik ve demokratikleşme problemlerine yanıt verememiştir. Bu bağlamda, Türkiye basit bir devlet piyasa karşıtlığının ötesine geçerek, kalkınma sürecinde gerçek anlamda iletişime dayalı bir planlama yaklaşımını geliştirmelidir.. Planlama teorisindeki genel eğilimler ve 20. yüzyıl Türk planlama tecrübesi temel alındığında, Türkiye’de iletişime dayalı planlama gerçek bir olasılık olarak ortaya çıkmaktadır. Uzun bir geçmişe dayanan çok partili demokrasi tecrübesi ve AB’ye tam üyelik adaylığı tarafından son dönemlerde ivme kazandırılan demokratikleşme hareketi ile Türkiye, bu alanda gelişme yolundaki dünyaya öncü olabilecek ülkelerden birisidir. İletişime dayalı planlama çerçevesinde kamu, piyasa ve sivil toplum temsilcilerinin biraraya getirilmesinin, planlamanın bilgi temelini güçlendirmesi, siyasi ve sosyal alanlarda planlamanın meşruiyetini artırması ve bu şekilde, planların başarı ile uygulanması olasılığını yükseltmesi beklenmektedir. Anahtar Kelimeler: Kompleks Modernite, Küreselleşme, İletişime Dayalı Planlama, Türk Planlaması iv ACKNOWLEDGEMENTS First and foremost my gratitude goes to my supervisor Emin Fuat Keyman who supported me in this long journey with his theoretical perspective, personal tolerance and intellectual insights. This thesis would not have been completed without his belief in my intellectual capacity and his precious contributions. I would like to thank all my previous instructors and friends too, who nourished me with their best fruits cultivated over long years. Without their contributions and encouragement I could not have dared to attempt such a heavy, but at the same time, self-realizing intellectual undertaking. At the same time, I would like to thank Ahmet İçduygu, Ömer Faruk Gençkaya, Mehmet Kalpaklı and Galip Yalman, whose valuable comments and suggestions helped me improve the structure of this thesis. My gratitude also goes to my colleagues and managers in the State Planning Organization of Turkey. I have always been proud to be part of this organization, and enjoyed the warm environment inside its building, which may look cold to some people looking from outside. My debates and discussions under the roof of the SPO are hidden behind various ideas developed in this thesis. Finally, I would like to thank my wife and children who made a lot of sacrifices and supported me in this long process without any rewards in return. v TABLE OF CONTENTS ABSTRACT …………………………………………………………………...……iii ÖZET …………………………………………………………………...………...…iv ACKNOWLEDGEMENTS ……………………………………………...…...…...…v TABLE OF CONTENTS…………………….……………………………..…..……vi CHAPTER I: INTRODUCTION …………………………………………………….1 1.1 Overall Arguments and Perspective of the Thesis …...………...………..……1 1.2 Methodology…...………………………………………………..…...………..5 1.3 Overview of Main Chapters of the Thesis………………………...………..…7 CHAPTER II: CONVENTIONAL PLANNING AND MODERNITY…………….18 2.1 Conventional Conception of Planning……………………………...………..18 2.2 Conventional Planning in National Development……………………...……20 2.3 Conventional Planning and Modernity………………………….…………...22 2.3.1 Conventional Planning and Modern Mode of Thinking …...…………24 2.3.2 Conventional Planning and the Modern Economy (Capitalism)……...33 2.3.3 Conventional Planning and the Modern State ...………………….…..46 2.4 Rationality in Simple Modernity and Conventional Planning …...………… 54 2.5 Two Major Paradigms of Conventional Planning Based upon Instrumental Rationality …………...……………………………...……….. 60 2.6 Uneven Development of Modernity and Planning…………………………. 65 2.6.1 Two Main Modalities in Modernity and Planning…………………… 65 vi 2.6.2 Deliberate Modernity