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effective, however, public sector planners must anticipate institutional resistance
to their efforts, particularly from within the state structure, and incorporate this
understanding into the formulation and sequencing of planning tasks in unorthodox
and counterintuitive ways. Drawing on examples of planning for the provision of
housing and employment for the urban poor in newly industrializing nations, the
article demonstrates that in effective practice, substantive and procedural theories
of planning are not separated, because planning procedures are largely influenced by
the particular substantive nature of problems to be addressed. Hence, planning
theorists need to better understand the substantive nature of problems in order to
provide practicing planners with institutional insights about the type of resistance
they are likely to encounter when a problem is formulated in a particular way. This
awareness of resistance to planning was absent in development planning's
formative years; but the last 50 years of planning experience have generated rich
tacit knowledge which, if formalized, can contribute to more effective public sector planning.
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