Exceptions and the actually existing practice of planning: Beirut (Lebanon) as case study

Abstract

Taking the provision of building permits as an entry point to its analysis, the paper documents the widespread practice of issuing ‘exceptions’ on which planning agencies in Beirut (Lebanon) frequently rely in their management of urban developments. The paper analyses ‘exceptions’ as a variable set of policy departures that take numerous forms (e.g. tolerance, concession, incentive), temporalities (before/after building), justifications (e.g. for political/social or developmental reasons), and materialise in different legal statuses (e.g. within the framework of the law/as temporary, extra-legal measures). It furthermore unravels a grammar that structures the allocation of specific forms of exceptions to particular social groups and urban spaces. The paper argues that although they are typically described as aberrations, exceptions cannot amount to the lack of the planning. Exceptions are rather a planning strategy that introduces a margin of manoeuver for planning authorities, without conceding radical changes in the structure organising access to the city. Furthermore, like other planning interventions, exceptions to building permit procedures perform to define, and consolidate, and/or reconfigure the entitlement of various social groups to dwell in the city but also to take part in its government, materialising hence in the reorganisation of urban territories and sovereignty arrangements. Ultimately, an invisible zoning dictated by these exceptions restructures the city in the variegated geography of centre, periphery, slum, camp, political territory, and others, and classifies urban dwellers into tolerated populations, political constituencies, outsiders, etc. The paper is based on the analysis of over 200 building permits in five areas of the city and more than 1000 decisions taken by public planning agencies.