Venturing into unknown territory: the preparation and formulation of the Second Benelux Structural Outline

Inherent in transnational planning are obstacles which cause spatial planners to venture into unknown territory. The scale, the issues and the institutional context are significantly different from planning at the national level or below. What does this mean for the role of spatial plan-making, which is the cornerstone of the planning profession? This paper focuses on the role of plans as part of building transnational governance capacity. It does so on the basis of an in-depth case study of the preparation of the Second Benelux Structural Outline (1994-2000). The research material consists of a series of interviews with directly involved planners and administrators, primary sources such as internal reports of the Benelux Economic Union and direct observations by the researcher who attended several meetings of the planning committee. The paper starts with a short discussion of contemporary planning theory through which the formulation of the plan is analysed. Planning as a communicative process and planning as a programming process are central concepts in this analytical framework. The paper proceeds with an analysis of the making of the Second Benelux Structural Outline. A conclusion is that the plan as a communicative tool was not sufficiently developed during the planning process, in spite of the desirability of such a feature in this stage of building transnational governance capacity. The concluding remarks will focus on the ways in which the communicative dimension of future transnational plans can be improved.