Effective strategy making: Co-designing scenarios as a tool for effective strategic planning

摘要

Subject of this study For establishing main lines of their future development, governments on several levels of government prepare spatial development visions, for assessing individual plans and initiatives against the background of a desired direction of development. Such strategic visions help to avoid the necessity to start considering again and again the question which direction long-term development should take. The European Commission promotes making such development strategies, hoping this leads to innovation in the regions and increased competitiveness of Europe. More particularly, the Commission expects a substantial contribution to prosperity of the rich diversity of local characteristics as assets for the development and innovation of the European territory. This study aims to explore the factors for success of strategic spatial planning. Strategy making happens in the different circumstances in European countries, legally regulated or informally, using terms like: Structure plans, structural visions, master plans, development visions and spatial development strategies. Here the term (spatial) development vision is used. The central question is: Which aspects of planning processes and place-related conditions support the effectiveness of strategy making? The processes of strategy making and the place related circumstances are intensively interrelated. The diversity of circumstances in the European countries is expressed in the different national and regional planning cultures. That includes the set of procedures, competencies, education of planners and other experts and their resulting attitudes towards strategy making. In a development strategy all interests of society come together. Therefore the constructive working together of representatives of different sectors and interest is key to the success. Because of this crucial issue, we distinguished between co-operation, as just contributing to someone else’s activity, co-producing, as making together a product and collaboration towards a strategy, defined as a common exploration of possibilities. The interactions of the participants in the strategy making process, potentially creating trust and enhancing social cohesion, may be more important than the resulting concept for a development strategy. Therefore our attention focused on the way strategies are made in the black box of specific processes. The interactions aiming at co-ownership and collaboration are central in this novel ’interactions approach’. The resulting strategy does not necessarily contain (infra) structural projects; a spatial strategy concerns a selected localised policy and argumentative framework for future development. Societal relevance Being a planning consultant with over forty years of experience in practice, the author highly values practical applicability in society. Understanding of practice-related factors for effectiveness of strategy making is important because effective public management saves costs for society; a framework expressing the aimed-for direction of development provides clarity for private initiatives; an agreed strategy helps to coordinate sector policies; several EU and national subsidies for projects require a locally agreed structural frame. Because a development vision concerns the direction of an envisaged development, its effectiveness is defined in terms of performance of the argumentative framework based on the story lines developed in the discussions during the strategy making process. Our search aims at identifying recommendations for enhanced chances for performing strategies in praxis. Approach A theoretical frame was composed based on literature in the fields of planning theory, policy analysis and design. Research questions were formulated concerning the importance of the process related variables: open process management, coownership, co-design, the application of scenarios and visualizations. Concerning the importance of the place related aspects, research questions consider: planning culture, multi-level embedding, involvement of politicians and the experiences of actors in previous processes. The explorations for composing the theoretic frame aimed to do justice as much as possible to the complexity of network society in which a strategy has to be agreed. First (im-) possibilities for governing public administrations in network societies are explored. That exploration concluded that since the authority of data, experts and politicians are not self-evident anymore; there is a greater need than before that actors become convinced by arguments. Not interests as they see it (differently) but story lines support converging to an agreed selection of located objectives. Strategy making should therefore be organized as a societal process aimed at sharing ownership of ideas among participants. The second exploration for composing the theoretic frame considered conceiving a development strategy as a decision-making process. The interdependenc