Who for rather than who with - how intended audiences help determine framing dynamics in contested planning

ABSTRACT This article considers the contested case of the Minhocão, São Paulo, to be either removed or turned into a park. The case provides insights for framing and planning literature. It is analysed through interviews, and media and document analysis. The results show that the involved actors adopt different framing strategies: adaptive, coherent, or deliberative. Each strategy has particular intended and actual audiences that help explain the dynamics of participatory contestation. Each strategy reveals choices in dealing with adversaries, who are present, and with intended audiences, who are largely absent. And each strategy has specific repercussions for learning and planning outcomes.