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Abstract
In the planning literature, there is a tendency to contradict top-down and bottom-up policies, government and governance and instrumental and communicative planning. However, through extensive action research in regional development practice, we have learnt that there is a need for combining them in adequate planning models, and we have found strong arguments in philosophy and theory for this combination when we go to the debate on modernization and the arguments in favour of better balance between communicative and instrumental rationalities. This article is a theoretical discussion of a planning model that we have called empowerment planning. In this discussion, we regard empowerment in regional development as a combination of top-down and bottom-up processes with the variables context, mobilization, organization, implementation and learning. Planning is regarded as a combination of instrumental and communicative rationalities in an institution-building process based on Habermas' will-forming process with different discourses. We present how a planning approach with institutional, strategic, tactical and operative levels of planning can stimulate different development variables, contribute to the institution-building process and strengthen the legitimacy of the planning institution.