Agonism and institutional ambiguity: Ideas on democracy and the role of participation in the development of planning theory and practice - the case of Finland

In this article the arrangements for the participatory planning of the five largest Finnish cities are examined from the perspectives of both democracy and planning theories. Four paradigms that form the continuum of general planning theoretical debate are identified as being relevant in the Finnish context: comprehensive-rationalistic, incrementalist, consensus-oriented communicative and conflict-oriented agonistic planning theory. These are discussed in relation to the parallel development of democracy theory: from the aggregative to the deliberative and further to the agonistic model of democracy. The empirical study reveals that while each paradigm shift in theory purports to replace the former theory with a new one, in practice the new theory emerges as a new addition to the palette of coexisting theoretical sources, to be drawn upon as a source of guidance and inspiration in organizing participatory planning. The five Finnish cities combine traits of different theories in their arrangements of planning participation, often in a fashion that generates institutional ambiguity. The argument concludes with discussing the necessity of further empirical and developmental research, where the contexts of both planning theory and democracy theory are related to the institutional challenges of planning conduct. If this does not happen the emerging agonistic planning theory, too, may become a paradigm shift at the level of theory only, thereby contributing to the widening gap between theory and practice.