Ordinary citizens and the political cultures of planning: in search of the subject of a new democratic ethos

What is required of the citizen to make planning more democratic? In this paper I argue this previously overlooked question illuminates key challenges for democratising planning in theory and practice. Distinguishing between deliberative and agonistic conceptions of communicative planning I review the qualities these theories demand of citizens. Through examples from Scotland I then contrast this with the roles citizens are currently invited to perform within a growth-orientated planning culture, drawing attention to techniques that use constructions of ‘good’ and ‘bad’ citizenship to manage conflict generated by development. I conclude by suggesting that whilst ‘ordinary’ citizens’ experiences draw attention to the strengths and weaknesses of deliberative and agonistic accounts, they also highlight hidden costs associated with participation that present significant challenges for the project of shaping a more democratic form of planning.