The Limits of Planning: Niklas Luhmann's Systems Theory and the Analysis of Planning and Planning Ambitions

Abstract

In this article, we argue that Niklas Luhmann has a lot to offer present-day planning theory. Until now, planning theory has been engaged with Luhmann's work only minimally. Convinced of its potential, we want to show how Luhmann's systems theory offers fresh insight into both limits and possibilities of planning in contemporary society. We argue that Luhmann's understanding of society as functionally differentiated into self-referentially closed subsystems (politics, economy, law, science, etc.) creates space for a complex and subtle analysis of planning practice. In particular, we look at the role of planning within an autopoietic account of society, and its ability to steer other social subsystems. Planning is seen as the form of steering aiming to coordinate processes of spatial organization, therefore an activity dealing with steering problems. We illustrate key concepts of the systems theory in brief analyses of planning situations and interpret these situations using the systems theoretical framework. The analyses center around the questions of planning's steering capacity and the role of the planner, thus creating linkages with mainstream discussions in planning theory.