Hard Facts and Software: The Co-production of Indicators in a Land-use Planning Model

Using land-use models in deliberative planning is promoted as an example of how environmental decision-making can be subject to both: 1) facts about how the interaction between human action and natural processes; and, 2) local perspectives on how land-use planning processes can incorporate normative concerns. This ‘normative’ input is often shaped and limited by the presentation of the modelled facts. This paper, however, shows that the selection and measurement of indicators, the primary outcomes of modelling exercises, are subject to a highly particular assessment, influenced by social factors, political choices and technical limitations. This revised understanding does not invalidate the use of models in participatory planning. But it does open up considerable space for stakeholders in deliberative contexts to question and challenge the evidence-based policy implications of so-called ‘fact-based’ modelling exercises.