The rationalities of strategic planning: a structural analysis of the legitimacy basis of MAL policy

Due to the minimal role of statutory city-regional planning in Finland, the Finnish state promotes inter-municipal, integrated planning of land-use, housing and transportation in the biggest city regions by a strategic planning instrument and a contractual policy tool called MAL procedure. MAL procedure includes MAL agreements, where the central government agrees to fund transportation infrastructure, while the municipalities in the city-regions commit to certain planning principles. MAL policy has advanced sustainability goals in planning, but it has also been argued to be prone to legitimacy problems as MAL negotiations take place behind the backs of citizens. The article discusses the structure of the MAL policy, assessing the ways in which this structure supports the legitimacy of the policy. It focuses on the interplay of strategic and communicative rationalities in the MAL procedure, starting from the observation that the theorists of strategic planning have focused predominately on communicative rationality as the legitimacy basis of planning. This paper aims to show that from a broader, structural perspective, both rationalities – and the way in which they interact – have a role in maintaining the legitimacy of planning. The article builds on theoretical studies and interviews with actors engaged in the MAL procedure.