Creative or instrumental planners? Agency and structure in their institutional and political economy context

Abstract

The paper casts light on structural factors limiting and shaping the actions of planners. In doing so it attempts to compensate for the emphasis planning theory places on the agency dimension of planners at the expense of the structural limitations they encounter. The paper draws from Giddens’s structuration theory, which depicts how the imbrication of agency and structure within institutional contexts sets the resources and constraints environment wherein social actors function. In order to adapt structuration theory to the reality of planners, the paper explores how motivations driving their agency take form largely within their professional realm. It also highlights the role institutional dynamics and political economy play in setting the structural context in which planners operate. The empirical substance originates from two junctures in the evolution of Toronto planning. The paper paints the picture of knowledgeable and reflective planners making informed decisions within changing structural contexts they do not control.