Lebanon

Last Updated: 08 November 2012

Mine Ban Policy

Mine ban policy overview

Mine Ban Treaty status	Not a State Party
Pro-mine ban UNGA voting record	Abstained on Resolution 66/29 in December 2011
Participation in Mine Ban Treaty meetings	Attended as an observer the Eleventh Meeting of States Parties in Phnom Penh in November–December 2011 and the intersessional Standing Committee meetings in May 2012

Policy

Lebanon has not acceded to the Mine Ban Treaty, but indicated in December 2009 that it intends to do so, saying that it “hopes to sign…in the future” and it “looks forward to joining the Mine Ban Treaty.”[1]

Lebanon’s leadership role in promoting the Convention on Cluster Munitions appears to have had a positive impact on its position on the Mine Ban Treaty. Lebanon had long said that it was unable to join the Mine Ban Treaty due to the continuing conflict with Israel, and that the 2006 war between Israel and Hezbollah heightened concerns about the security of its southern border.[2]

Lebanon attended as an observer the Eleventh Meeting of States Parties to the Mine Ban Treaty in Phnom Penh in November–December 2011 but did not make any statements. In May 2012, Lebanon attended the intersessional Standing Committee meetings in Geneva.

Lebanon voted in favor of UN General Assembly resolution 65/48 on antipersonnel mines on 8 December 2010, but subsequently informed the UN Secretariat that it had intended to abstain.

Lebanon is not party to the Convention on Conventional Weapons.

Production, transfer, use, and stockpiling

In December 2009, Lebanon confirmed that it “has never produced or exported antipersonnel mines.”[3] There have been no allegations of new use by Lebanese forces of antipersonnel mines or antipersonnel mine-like devices in Lebanon since 2006.[4] In late 2011 and in 2012, the Syrian Army laid antipersonnel landmines[5] along its borders, including the border with Lebanon in al-Buni,[6] Heet (PMN-2 and TMN-46 mines)[7] and Masharih al-Qaa.[8]

In August 2011, Lebanon informed the Monitor that “The Lebanese Government doesn’t use or stockpile or produce or transport any anti-personnel mines, though the Lebanese army retains very few numbers for training purposes.”[9] Earlier, in March 2008, the director of the Lebanon Mine Action Center (LMAC) said that the stockpile consists of a small quantity of mines, which he described as being lower than the maximum number permitted by the Mine Ban Treaty for training purposes.[10]

[1] Statement by Gen. Mohamed Femhi, Director, Lebanon Mine Action Center (LMAC), Second Review Conference, Mine Ban Treaty, Cartagena, 4 December 2009. More fully, Lebanon said, “Regardless of the fact that Israel refuses to accede to the Ottawa or Oslo Conventions…Lebanon will not follow that same path. Lebanon understands the tragic consequences that cluster munitions and anti-personnel mines have on civilian populations. Lebanon has signed the Oslo treaty and hopes to sign the Ottawa Convention in the future…. Lebanon, here again, confirms his beliefs in the principle of the Ottawa Convention and its noble objectives, and looks forward to joining the Mine Ban Treaty.”

[2] See, for example, statement by Amb. Michel Haddad, First Review Conference, Mine Ban Treaty, Nairobi, 3 December 2004. The ambassador cited the “failure of the Government of Israel to submit all the maps showing the deployment of landmines” and the “continued occupation by Israel of parts of Southern Lebanon.”

[3] Statement by Gen. Mohamed Femhi, LMAC, Second Review Conference, Mine Ban Treaty, Cartagena, 4 December 2009.

[4] See Landmine Monitor Report 2007, pp. 893–895, for allegations regarding Hezbollah, Fatah al-Islam, and Israel; and response to Monitor questionnaire by the Permanent Mission of Lebanon to the UN in Geneva, 26 August 2011. Lebanon confirmed in the August 2011 letter that “Antipersonnel mines were never used in Lebanon in 2010 or 2011.”

[5] The Lebanese president confirmed in November 2011 that Syria had planted landmines along its border with Lebanon on the Syrian side. See “Sleiman: Syria regrets incursions into Lebanon,” The Daily Star, 10 November 2011, www.dailystar.com.lb/News/Politics/2011/Nov-10/153596-sleiman-syria-regrets-incursions-into-lebanon.ashx - axzz28CfJlYqx.

[6] “2 Syrian Nationals Wounded by Landmine at Northern Border-Crossing,” Naharnet, 9 February 2012, http://www.naharnet.com/stories/en/29506-2-syrian-nationals-wounded-by-landmine-at-northern-border-crossing.

[7] On March 9, The Washington Post published a photo of dirt-covered PMN-2 antipersonnel mines and TMN-46 antivehicle mines that it reported were planted by the Syrian army on the outskirts of the Syrian village of Heet.

[8] “Syria plants mines along Lebanon border,” The Daily Star, 13 June 2012, www.dailystar.com.lb/News/Local-News/2012/Jun-13/176712-syria-plants-mines-along-lebanon-border.ashx - ixzz1xuenvXvj. For information about an injury at an unidentified location on the Syria-Lebanese border, see “Lebanon-Syria border blast wounds 3,” Agence France-Presse, 29 July 2012, http://reliefweb.int/report/lebanon/lebanon-syria-border-blast-wounds-3-medic.

[9] Response to Monitor questionnaire by the Permanent Mission of Lebanon to the UN in Geneva, 26 August 2011.

[10] Interview with Gen. Mohamed Fehmi, LMAC, Beirut, 3 March 2008. While the text of the Mine Ban Treaty does not specify a maximum number that may be retained for demining training purposes, most States Parties have agreed that the number should be in the hundreds or thousands, or less, and not in the tens of thousands.

Last Updated: 17 August 2012

Cluster Munition Ban Policy

Commitment to the Convention on Cluster Munitions

Convention on Cluster Munitions status	State Party
Participation in Convention on Cluster Munitions meetings	Hosted Second Meeting of States Parties in Beirut in September 2011 and attended intersessional meetings in Geneva in April 2012
Key developments	National implementation measures underway. Serving as President of Second Meeting of States Parties until September 2012

Policy

The Republic of Lebanon signed the Convention on Cluster Munitions on 3 December 2008 and ratified on 5 November 2010. The convention entered into force for Lebanon on 1 May 2011.

On national measures to implement the Convention on Cluster Munitions, Lebanon informed the Monitor in June 2012 that “a review of existing national laws and codes is underway” and due to be completed by August 2012. Lebanon said that proposed recommendations to implement the ban convention will be then presented to Parliament and relevant ministries for consideration and action.[1]

Lebanon submitted its initial Convention on Cluster Munitions Article 7 transparency measures report on 27 October 2011.[2] In April 2012, Lebanon submitted an updated report for the period 27 October 2011 to 9 April 2012.

Lebanon participated throughout the Oslo Process that created the Convention on Cluster Munitions and advocated strongly for humanitarian protection to be given first priority in the development of the convention’s provisions.[3] Israel’s large-scale use of cluster munitions in Lebanon during the 2006 conflict contributed greatly to the sense of humanitarian urgency that underpinned the Oslo Process.[4]

Lebanon has continued to be centrally engaged in the work of the Convention on Cluster Munitions. In November 2010, Lebanon assumed a crucial leadership role as president of the convention’s Second Meeting of States Parties.

On 12–16 September 2011, Lebanon hosted the Second Meeting of States Parties of the Convention on Cluster Munitions in Beirut, under the theme of “Together for a Safer Life.” A total of 131 governments participated in the meeting (52 States Parties, 38 signatories, and 40 observer states including China), as well representatives from UN agencies, the ICRC, and the CMC.[5] The CMC delegation was comprised of 390 campaigners from 60 countries, including survivors and youth. Hundreds of delegates participated in field visits around southern Lebanon to observe clearance, risk education, and victim assistance activities undertaken by government authorities, including the national army, and also by civil society groups. More than two-dozen side events and other activities were held parallel to the Second Meeting of States Parties, including a football match between Lebanese survivors of cluster munitions and explosive ordnance and a group of diplomats and campaigners.

Lebanon’s President General Michel Sleiman addressed the meeting’s opening ceremony with a statement that condemned the use of cluster munitions and described how Lebanon has suffered from cluster munition use. Lebanon’s Minister for Foreign Affairs and Emigrants, Adnan Mansour, served as president of the Second Meeting of States Parties with the assistance of Lebanon’s Permanent Representative to the UN in Geneva, Ambassador Najla Riachi Assaker. During the meeting, Lebanon made statements on a range of topics, including universalization, national implementation measures, clearance, and victim assistance.

At the Second Meeting of States Parties, governments adopted the Beirut Progress Report, a bold document that strongly condemns the use of cluster munitions and reports on progress made in the implementation of the Vientiane Action Plan issued by the First Meeting of States Parties.[6] An extraordinarily high number of non-signatories from the Middle East and North Africa attended the meeting as observers, many participating for the first time in a meeting of the convention. Swaziland deposited its instrument of accession to the Convention on Cluster Munitions during the meeting, becoming the 110th nation to join.[7]

As president of the Second Meeting of States Parties, Lebanon has continued to play an active leadership role promoting the ban convention, including through its participation in regional meetings on cluster munitions held in May 2012 in Rakitje, Croatia and in Accra, Ghana. It has chaired the frequent meetings of the coordinators for thematic issues that were established at the First Meeting of States Parties.

At the convention’s intersessional meetings in Geneva in April 2012, Lebanon opened the meeting and presented the findings of its ongoing consultations into the creation of an implementation support unit (ISU) for the Convention on Cluster Munitions. During the meeting, Lebanon made several statements, including on clearance, cooperation and assistance, transparency reporting, and national implementation measures.

In its role as President of the Second Meeting of States Parties, Lebanon has vigorously promoted universalization of the Convention on Cluster Munitions. Lebanon has co-signed letters with Japan, the ban convention’s co-coordinator on universalization, urging states to join the convention. Lebanon has raised the importance of accession during official visits to Bahrain, Kuwait, and the United Arab Emirates.[8]

At the 16^th Ministerial meeting of the Non-Aligned Movement (NAM) in Bali, Indonesia in May 2011, Lebanon cooperated with Lao PDR to secure language in the final declaration on the Convention on Cluster Munitions. At the NAM Ministerial meeting held in Sharm el Sheikh, Egypt on 7-10 May 2012, the ministers “recognized the adverse humanitarian impact caused by the use of cluster munitions and expressed sympathy with the cluster munitions-affected countries,” acknowledged the ban convention’s the entry into force, and noted its Second Meeting of States Parties held in Lebanon in September 2011.[9]

Lebanon is not a party to the Mine Ban Treaty.

Interpretive issues

Lebanon has provided interpretive statements on a number of important provisions in the convention. Lebanon has stated that the prohibition on the transfer of cluster munitions includes a prohibition on “transit,” that foreign stockpiling of cluster munitions is prohibited, that financing and investment in cluster munition production or transfer is prohibited, and that Article 1 of the convention takes precedence over Article 21 so that “States Parties must never undertake any act that could constitute deliberate assistance with a prohibited act.”[10]

In September 2011, Lebanon stated that it does not see any reason to retain cluster munitions or submunitions for training or research purposes as permitted by Article 3 of the Convention on Cluster Munitions, noting “detection of submunition remnants does not require a more sophisticated technology than what currently exists.”[11]

Convention on Conventional Weapons

Lebanon is not a party to the Convention on Conventional Weapons (CCW), but participated as an observer in the CCW’s Fourth Review Conference in November 2011 where it was part of a group of states opposed to the creation of a new CCW protocol permitting continued use of cluster munitions.

During the negotiations, Lebanon suggested that instead of a new protocol, CCW states could undertake national measures on prohibitions and restrictions, as well as issue a declaration emphasizing the inhumane nature of cluster munitions.[12] On the final day of the conference, Lebanon was one of 50 states that issued a joint statement declaring that the chair’s draft text does not fully address their fundamental concerns and is unacceptable from a humanitarian standpoint, and therefore does not command consensus.[13]

The Review Conference ended without reaching agreement on the proposed CCW protocol, thus concluding the CCW’s work on cluster munitions.

Use, production, transfer, and stockpiling

Lebanon has stated several times that it has never used, produced, or stockpiled cluster munitions.[14]

Israel used cluster munitions in Lebanon in 1978, 1982, and 2006.[15] The United States dropped cluster bombs against Syrian air defense units near Beirut during an armed intervention in December 1983.[16] In 2006, Hezbollah fired cluster munitions from southern Lebanon into northern Israel.[17]

[1] “Cluster Munition Monitor 2012,” document provided in Letter from the Permanent Mission of Lebanon to the UN in Geneva to Human Rights Watch (HRW), Ref 8/27/1 & 131/2012, 7 June 2012.

[2] The report covers the period from 13 October 1990 to 27 October 2011.

[3] For detail on Lebanon’s policy and practice regarding cluster munitions through early 2009, see HRW and Landmine Action, Banning Cluster Munitions: Government Policy and Practice (Ottawa: Mines Action Canada, May 2009), pp. 105–107.

[4] For details on Israel’s use of cluster munitions in Lebanon and its impact, see HRW, “Flooding South Lebanon: Israel’s Use of Cluster Munitions in Lebanon in July and August 2006,” Vol. 20, No.2(E), February 2008; and Landmine Action, “Foreseeable harm: the use and impact of cluster munitions in Lebanon: 2006,” October 2006.

[5] UN, “Final Document, Convention on Cluster Munitions, Second Meeting of States Parties,” CCM /MSP/2011/5, Beirut, 16 September 2011, http://www.clusterconvention.org/files/2011/05/2MSP-Final-Document.pdf.

[6] “Draft Beirut Progress Report,” CCM/MSP/2011/WP.5, 25 August 2011, http://www.clusterconvention.org/files/2011/05/Beirut-Progress-Report-ODS-upload4.pdf.

[7] From the Middle East and North Africa, the following non-signatories to the Convention on Cluster Munitions participated in the Second Meeting of States Parties: Egypt, Iran, Jordan, Kuwait, Morocco, Oman, Qatar, Saudi Arabia, Syrian Arab Republic, United Arab Emirates and Yemen, as well as Palestine.

[8] Lebanon, Convention on Cluster Munitions Article 7 Report, Form J, 27 October 2011.

[9] See paragraphs 218 and 219 of the final document: “218. The Ministers recognized the adverse humanitarian impact caused by the use of cluster munitions and expressed sympathy with the cluster munitions-affected countries. They called upon all States in a position to do so, to consider providing the necessary financial, technical and humanitarian assistance to unexploded cluster munitions clearance operations, the social and economic rehabilitation of victims as well as to ensure full access of affected countries to material equipment, technology and financial resources for unexploded cluster munitions clearance. 219. The Ministers noted the entry into force of the Convention on Cluster Munitions on 1 August 2010 and the outcome of the Meeting of States Parties to the Convention held in Lebanon in September 2011.” Final Document of the Non-Aligned Movement Ministerial meeting, Sharm el Sheikh, 7-10 May 2012, http://www.mfa.gov.eg/nam/documents/final%20document%20adopted%20by%20the%20ministerial%20meetings%209-10%20May.pdf.

[10] Letter from the Permanent Mission of Lebanon to the UN in Geneva, 10 February 2009. It states: “It is the understanding of the Government of Lebanon that the transit of cluster munitions across, or foreign stockpiling of cluster munitions on the national territory of States Parties is prohibited by the Convention. Article /1/ paragraph (b) of the Convention explicitly prohibits all stockpiling and all transfers…. It is the understanding of the Government of Lebanon that all assistance with prohibited acts is prohibited under Article /1/ paragraph (c) of the Convention. While Article 21 allows for military cooperation with states non party to the Convention it does not allow any assistance with prohibited acts. In the view of Lebanon Article /1/ paragraph (c) takes precedence over Article 21 and States Parties must never undertake any act that could constitute deliberate assistance with a prohibited act. It is the understanding of the Government of Lebanon that Article /1/ paragraph (c) of the Convention prohibits the investment in entities engaged in the production or transfer of cluster munitions or investment in any company that provides financing to such entities. In the view of Lebanon ‘assistance’ as stipulated in Article /1/ paragraph (c) includes investment in entities engaged in the production or transfer of cluster munitions and is thus prohibited under the Convention.”

[11] Statement of Lebanon, Convention on Cluster Munitions Second Meeting of States Parties, Beirut, 14 September 2011, http://www.clusterconvention.org/files/2011/09/ssd_lebanon.pdf.

[12] Statement of Lebanon, CCW Fourth Review Conference, Geneva, 24 November 2011. Notes by AOAV.

[13] Joint Statement read by Costa Rica, on behalf of Afghanistan, Angola, Austria, Bolivia, Burkina Faso, Chile, Colombia, Congo, Costa Rica, Democratic Republic of Congo, Denmark, Djibouti, Ecuador, El Salvador, Ghana, Guatemala, Guinea, Guinea-Bissau, Haiti, Holy See, Honduras, Iceland, Lao PDR, Lebanon, Lesotho, Liechtenstein, Liberia, Madagascar, Mali, Mexico, Mozambique, Namibia, Nicaragua, Niger, Nigeria, Norway, Panama, Paraguay, Senegal, Slovenia, South Africa, Spain, Sudan, Togo, Tunisia, Uganda, Uruguay, Venezuela, Zambia and Zimbabwe. CCW Fourth Review Conference, Geneva, 25 November 2011. List confirmed in email from Bantan Nugroho, Head of the CCW Implementation Support Unit, UN Department for Disarmament Affairs, 1 June 2012.

[14] Letter from the Permanent Mission of Lebanon to the UN in Geneva, 10 February 2009; Lebanon, Convention on Cluster Munitions Article 7 Report, Form B, 27 October 2011; “Cluster Munition Monitor 2012,” document provided in Letter from the Permanent Mission of Lebanon to the UN in Geneva to HRW, Ref 8/27/1 & 131/2012, 7 June 2012; and Statement of Lebanon, Convention on Cluster Munitions Second Meeting of States Parties, Beirut, 14 September 2011, http://www.clusterconvention.org/files/2011/09/ssd_lebanon.pdf.

[15] HRW, “Meeting the Challenge: Protecting Civilians through the Convention on Cluster Munitions,” November 2010, pp. 33–38.

[16] US Department of the Navy, Attack Squadron 15, Memorandum from Commanding Officer, Attack Squadron 15, to Chief of Naval Operations, “Command History: Enclosure 5, Ordnance Expenditure for 1983,” 18 February 1984, declassified 28 April 2000.

[17] HRW, “Civilians Under Assault: Hezbollah’s Rocket Attacks on Israel in the 2006 War,” August 2007, pp. 44–48. Hezbollah fired about 100 Chinese-produced Type-81 122mm cluster munition rockets, each of which contains 39 Type-90 submunitions, also known as MZD-2. In June 2012, Lebanon provided the Monitor with the following statement: “In the aftermath of the 2006 Israeli aggression, the Lebanese army found several kinds of unexploded cluster munitions on the Lebanese territory. Among these found were used and failed Chinese made MZD2. All (MZD2) were found in an area that is 10 kilometers away from the Lebanese – Occupied Palestine borders. Lebanon does not stockpile any kind of cluster munitions, it has not used any in the past, and the Lebanese Government considers all failed or unexploded cluster munitions or submunitions on the Lebanese soil as a legacy of the Israeli aggression on Lebanon; it should be noted though that these MZD2 munitions were only found after the 2006 aggression.” “Cluster Munition Monitor 2012,” document provided in Letter from the Permanent Mission of Lebanon to the UN in Geneva to HRW, Ref 8/27/1 & 131/2012, 7 June 2012.

Last Updated: 17 December 2012

Mine Action

Contamination and Impact

Lebanon is contaminated with mines and explosive remnants of war (ERW) as a legacy of 15 years of civil conflict that ended in 1990. The July–August 2006 invasion by Israel resulted in heavy new contamination from cluster munition remnants in southern Lebanon.[1] A serious residual threat also results from landmines. Remaining landmine and cluster munition contamination is said to affect 565 towns and more than 900,000 people, or approximately one in five of the population.[2]

Mines

Based on the Landmine Impact Survey (LIS) conducted in 2002–2003 and revised estimates by the Lebanon Mine Action Center (LMAC), 161.8km² of land was suspected to be mined.[3] By May 2012, national non-technical survey (NTS) had reduced the estimated size of mined areas (not including the UN-delineated Blue Line between Israel and Lebanon) to 12.3km² and the remaining dangerous areas (which comprise booby-traps and “nuisance” mines) to 2km².[4] Affected areas are in Batroun, Chouf, Jbeil, and Jezzine; north of the Litani river; in the Bekaa valley; and across Mount Lebanon. Along the 118km-long Blue Line, the estimated contaminated area lies across 890 mined areas covering a further 7.41km².[5] A further 361 potential tasks covering 29.34km², where some clearance occurred after the LIS, have not yet been surveyed.

As of May 2012, no mined areas resulting from events in Syria had been found in Lebanon and no casualties from these events had occurred in Lebanon according to the LMAC.[6] However, a 13 June 2012 report in the Lebanese newspaper The Daily Star alleged that Syria had placed landmines 300 meters inside Lebanon on the eastern border area of Masharih al-Qaa.[7]

Cluster munition remnants

Cluster munition contamination originates primarily from the conflict with Israel in July–August 2006, though some contamination remains from conflict in the 1980s.[8] As of April 2012, 17.86km² was suspected to be contaminated by cluster munition remnants, across 449 suspected hazardous areas (SHAs).[9] At the end of 2008, LMAC had estimated 16km² remained. The increased figure, despite significant clearance, is said to result from re-surveying of contaminated areas and data that only became available in clearance completion reports.[10]

Impact

Cluster munition remnants affect water supplies and power lines and impede the excavation of rubble, farming, and reconstruction efforts.[11] LMAC estimated that economic activity in 2011 in south Lebanon had decreased by approximately $25 million from the more than $100 million recorded in 2006.[12] Post-clearance surveys by the Lebanese Armed Forces (LAF), Norwegian People’s Aid (NPA), and the Lebanon Demining Organization (LDO) show 97% of cleared land is in use within three months after clearance, with housing and agriculture being the primary use of the land.[13]

Despite these post-clearance survey results, a UNDP evaluation of mine action in 2011 criticized LMAC for having underused socio-economic data that could help to understand better the negative impact of mines and cluster munitions as well as the positive impact mine action has had on the economy in the south. It concluded that LMAC had missed several opportunities to collect socio-economic data during NTS and that the information obtained through surveys had not been sufficiently exploited to demonstrate the benefits of mine action in Lebanon, nor had it been shared with stakeholders.[14]

Other explosive remnants of war

Isolated ERW can be found across the country, which is the responsibility of the LAF to clear, but the precise extent of contamination is not known.

Mine Action Program

Key institutions and operators

Body	Situation on 1 January 2012
National Mine Action Authority	Lebanese Mine Action Authority
Mine action center	Lebanon Mine Action Centre (LMAC) and the Regional Mine Action Center UN Mine Action Support Team within UNIFIL
International mine clearance operators	DanChurchAid (DCA), Handicap International (HI), and Mines Advisory Group (MAG)
International cluster munition clearance operators	DCA, MAG, Norwegian People’s Aid (NPA), Swiss Foundation for Mine Action
National demining operators	Lebanese Armed Forces (LAF), Peace Generation Organization for Demining (POD)
National cluster munition clearance operators	POD
International survey	None
National survey	LAF, Lebanese Demining Organization (LDO)
International risk education operators	None
National risk education operators	Al-Jarha Association for the War Wounded and Disabled in Lebanon, Islamic Risala Scouts Association, Lebanese Welfare Association for the Handicapped, Vision Association, Welfare Association for the Handicapped in Nabatiye, Islamic Health Council, Lebanese Association for Health and Social Care, Family Care Lebanon, and LAF.

Lebanon has asserted full ownership over its mine action program and all policies and decisions are made by the government.[15] LMAC is based in Beirut within the Ministry of Defense, reports to the Deputy Chief of Staff for Operations of the LAF, and manages all mine action activities through its Regional Mine Action Centre (RMAC) in Nabatiye.[16] The mine action center is staffed with personnel from the LAF. Nine civilian personnel through UNDP support fill various personnel gaps, with the majority of them in the database unit.[17] LMAC also manages risk education (RE) and victim assistance while chairing the two respective national steering committees.[18]

In December 2011, Brigadier-General Mohammed Fehmi left after almost six years as the director of LMAC. Brigadier-General Imad Odiemi took up the position in February 2012.[19]

An Interministerial Advisory Committee for mine action, with the director of LMAC serving as its secretariat, determines the strategic priorities for mine action in Lebanon.[20] The International Support Group, with senior representation from UNDP, the World Bank, and concerned donor country representation at the ambassadorial level, has not met since 2009.[21] It planned to reconvene in 2012.[22]

According to a UNDP assessment in August 2011, despite favorable assessments of LMAC and its management of the mine action program by donors and other stakeholders, national commitment at the highest level of government is lacking and there is no mechanism to monitor LMAC. In the last several years, due to the political situation in Lebanon, the Interministerial Advisory Committee has been inactive. According to UNDP, this has resulted in “a lack of integration of mine action at the higher level, missed opportunities to pool resources from other government sectors serviced by the LMAC, lack of exposure and communication of good tangible results, and weaker lobbying for mine action.”[23]

From 2001 through 2010, UNDP provided its support through a Chief Technical Adviser. In 2010, UNDP also provided temporary technical support in quality management through the provision of a full-time quality management expert, for one year. At the request of LMAC, however, neither position was renewed. UNDP supports LMAC at the policy level, funds nine RMAC staff, and promotes the development of national NGOs.[24] UNDP support for nine civilian personnel also contributes to the overall management costs.[25]

The Lebanese government contributes US$6.5 million per year for salaries of 90 LAF personnel, equipment, and running costs for the LMAC and RMAC.[26]

In October 2011, the UN Mine Action Coordination Center (UNMACC) was renamed the UN Mine Action Support Team (UNMAST) and reduced its personnel significantly. It trains the UN Interim Force in Lebanon (UNIFIL) demining units and monitors and validates that UNIFIL mine clearance on the Blue Line complies with International Mine Action Standards.[27] The memorandum of understanding (MoU) between Lebanon and UNIFIL outlining responsibilities for humanitarian demining expired in December 2010 and as of May 2012 a new MoU was still under discussion with the Ministry of Defense.[28] Since October 2011, the UN Interim Force in Lebanon has no longer been conducting demining.[29]

2011–2020 Strategic plan[30]

In September 2011, LMAC adopted a strategic plan for 2011–2020. The national strategy aims to contribute to Lebanon’s development objectives and guide LMAC in implementing the Convention on Cluster Munitions and the Convention on the Rights of Persons with Disabilities. The strategic plan includes five major aims over the 10-year period:

· The enabling of affected communities to better manage risk from landmines;

· Guaranteed rights for victims;

· Mine action contribution to the socio-economic development of Lebanon;

· Compliance with the Convention on Cluster Munitions and the promotion of the universalization of the Convention; and

· Establishment of sustainable residual capacity.

The plan calls for the complete clearance of cluster munition remnants by December 2016 and the clearance of landmines (except for the the Blue Line area) by December 2020.[31] The clearance of 890 mined areas along the Blue Line is dependent on political developments that will allow the LAF to move forward and conduct technical surveys and clearance operations. Currently the area bordering Israel is under the control of UNIFIL and no humanitarian clearance occurs there.[32]

A key element ensuring the targets of the strategic plan are met is the maintaining of 30 battle area clearance (BAC) teams in 2012–2016. If funding cannot maintain 30 BAC teams per year, the 2016 target may be missed.[33]

Program evaluations

UNDP evaluation

In July 2011, UNDP commissioned an internal evaluation of its support given to mine action in Lebanon to determine how to continue its support of LMAC and Mine Action. Overall, the review found “an excellent mine action programme, executed and implemented by remarkably committed and dedicated personnel, with a strong sense of ownership.”[34] Evaluations by the Australian Agency for International Development (AusAid, see below) and the European Commission in 2011 reached similar conclusions.[35]

While the UNDP review gave high marks to LMAC, it also pointed out a few shortcomings. It concluded that LMAC could greatly improve what it communicates to stakeholders and other levels of government on the mine action program. It specifically said the prioritization of tasks was not transparent enough and local authorities are not sufficiently consulted during planning. In addition, there is little collaboration with other government ministries, institutions, organizations, and companies involved in development, according to the report.[36] The work of the Lebanon mine action program is not well known internationally and UNDP recommended a more aggressive and coherent approach from LMAC and the government of Lebanon in presenting its achievements, constraints, needs, and lessons learned.

The five international NGOs[37] are key players in the mine action program in Lebanon but the study found they are underused. They carry out clearance tasks to a high professional level and raise funds to support Lebanon’s mine action and development goals, yet LMAC does not draw on the institutional expertise of the international NGOs to its fullest. Additionally, until recently, LMAC had not taken advantage of the international NGOs expertise in impact assessment at the time when LMAC itself was developing its own national impact assessment system.[38] After training from NPA in June 2011, LDO began piloting an NPA questionnaire in February 2012, with the full support of LMAC, while conducting its own post-clearance surveys.[39]

AusAid Evaluation[40]

In 2011, AusAid commissioned a mid-term review of its 2010–2014 mine action strategy; in November 2011, it conducted a review of the Lebanon mine action program as part of its Middle East strategy. AusAid found that the program led by LMAC was both well organized and implemented. AusAid provides its funding through the Mines Advisory Group (MAG) and NPA. The review concluded both these NGOs “represent value for money and are achieving the outputs and outcomes stated in their project documents.” The review recommended AusAid should continue giving its support to clear cluster munitions through the end of 2016 when Lebanon planned to complete clearance.

Clearance and survey capacity

Three national NGOs, four international NGOs, one commercial company and the Lebanese army comprise the landmine and cluster munition clearance capacity in Lebanon.

National commercial companies and NGOs

Since September 2009, two national NGOs and one national commercial company have been established. In September 2009, the NGO Peace Generation Organization for Demining (PGOD) was established, working in partnership with the Iranian organization, Immen Sazan Omran Pars (ISOP) with funding from the government of Iran.[41] Middle East Mines Specialists (MMCS) was established as a commercial company in 2010 with funding from Russia’s EMERCOM.[42] MMCS suspended operations in July 2011 when its funding expired and is in the process of changing its status to a national NGO.[43] LDO was established in 2010 with a grant from the US Department of State. Until the end of 2011, LDO conducted NTS for LMAC. In 2012, it began conducting post-clearance surveys with three survey teams.[44]

International commercial companies and NGOs

DanChurchAid (DCA) has been clearing cluster munition remnants and landmines in south Lebanon since September 2007.[45] MAG has been in Lebanon since 2000 and is based in Nabatiye. MAG is the only clearance operator in Lebanon with mechanical assets. It provides its mechanical assets to all operators as needed.[46] NPA is based in Tyre and has been clearing cluster munitions in Lebanon since 2006 and was planning to hire additional staff in June 2012 with new funding from Belgium and Italy through UNDP.[47] The Swiss Foundation for Mine Action (FSD) returned to Lebanon in September 2010 after a one-year absence and has three teams.[48] Handicap International (HI) has been involved in mine clearance operations in Lebanon since 2006. Based in Toula, HI is the only organization clearing mines in north Lebanon.[49] Each month, RMAC holds meetings in Nabatiye with all the operators.

In January 2012, the US Department of State awarded a contract to Sterling International, a US-based business that specializes in humanitarian and security related services, in response to a call for tender issued in March 2011 to replace DynCorp International and continue the training of LMAC in explosive ordnance disposal (EOD), demining, and quality assurance (QA), as well as to provide demining equipment to LMAC.[50]

Lebanese Armed Forces

The LAF engineer regiment contributes two BAC teams that can also be tasked to clear mines when needed. The LAF also deploys its seven mine-detection dog teams as needed to support clearance by the NGOs.[51]

UNIFIL

The primary task of UNIFIL mine-clearance teams is to clear paths through minefields in order to place 470 markers on the 118km-long Blue Line. As of 5 April 2012, UNIFIL had placed 200 markers. Its capacity consists of demining battalions from Belgium, Cambodia, China, France, Italy, and Spain.[52]However, due to troop rotations and leave time, the 18 mine clearance teams are never working at the same time.[53] In October 2011, UNIFIL discontinued humanitarian demining on the Blue Line and only clears mines to facilitate the placement of markers.[54]

Land Release

Priorities for land release focus on infrastructure, housing, and agriculture.[55]In 2011, 0.08km² of mined areas and 2.5km² of land containing cluster munition remnants were cleared in Lebanon.

LMAC reported conducting 3.41km² of manual clearance in 2011 as well as 100,415m² of mechanical clearance, and release of 132,470m² by mine-detection dogs.[56] LMAC, however, did not disaggregate the data by clearance of mined area, battle area, and area contaminated by cluster munitions, so the total has been recorded only as BAC. Clearance included destruction of 43 antipersonnel mines and 584 unexploded submunitions.

Five-year summary of clearance[57]

Year	Mined area cleared (km²)	Cluster-munition-contaminated area cleared (km²)
2011	0.08	2.54
2010	1.59	3.14
2009	0.04	3.90
2008	0.08	9.86
2007	0.49	15.43
Totals	2.28	34.87

Survey in 2011

The Lebanon mine action program conducts both NTS and technical survey (TS). In 2011, the LAF completed the National Non-Technical Survey project that began in 2005. The aim was to re-survey all SHAs identified during the LIS in 2002–2003. SHAs are canceled when they meet a number of criteria established by LMAC. The land must be in use and cleared previous to the LIS. Before releasing the land, leaders of the municipalities and the landowner are interviewed. (Lebanese law is clear on land ownership.) As part of the survey, landowners are shown photographs of landmines and ERW and then asked whether they have seen such objects on their land. At the end of the interview, they are asked to sign an affidavit stating the land they own does not contain mines and ERW.[58]

NTS confirmed 605 tasks remained covering 14.46km²; this includes both known mined areas and dangerous areas containing booby-traps and “nuisance” mines. NTS also identified 361 tasks covering 29.34km² where some clearance had occurred after the LIS and which LMAC decided not to survey. In addition, there are 890 mined areas along the Blue Line covering 7.41km².[59] The NTS results have not been incorporated into the baseline data used to develop the 2011–2020 Strategic Plan.

After the completion of the NTS project at the end of 2011, LMAC tasked the two LDO survey teams to conduct post-clearance surveys on land cleared of submunitions using a short questionnaire designed by RMAC. In February 2012, LDO added a third survey team to pilot a post clearance survey questionnaire developed by NPA. The US Department of State funds two survey teams and NPA supports one team.[60]

Mine clearance in 2011

In 2011, DCA, HI, MAG, and NPA together cleared 75,615m² of mined area while finding 404 antipersonnel mines, one antivehicle mine and 633 items of unexploded ordnance.[61] On the Blue Line in January–September 2011, UNIFIL cleared 23,441m² by manual clearance, 3,338m² by mechanical clearance, and 8,982m² by battle area clearance, finding and destroying 438 antipersonnel mines, 54 antivehicle mines, and 63 submunitions.[62] Although LMAC reported that the LAF found 43 antipersonnel mines in 2011 during emergency response tasks, they did not report either how many areas were cleared or the amount of contaminated area.[63]

Clearance of cluster munition contaminated areas in 2011

All clearance of cluster munition remnants is both subsurface and surface.[64]In 2011, LMAC reported that NGO operators cleared 2.51km² of contaminated land, destroying 4,888 unexploded submunitions. Since December 2010, UNIFIL has not cleared unexploded submunitions in Lebanon.[65]

The table below shows a significant decline in clearance from 2009 to 2011. During the course of 2009, the total number of teams declined as funding was reduced and FSD, Swedish Civil Contingencies Agency (MSB), and BACTEC left the country.[66]

Clearance of cluster munition remnants by operator in 2009–2011[67]

	2011	2010	2009	Totals
Operator	Area cleared (m²)	Area cleared (m²)	Area cleared (m²)	Area cleared (m²)
NPA	661,186	860,668	1,181,300	2,703,154
MAG	556,715	562,422	1,458,626	2,577,763
DCA	567,050	436,285	692,541	1,695,876
LAF	Not reported	863,496	128,706	992,202
POD	387,684	338,450	50,995	777,129
FSD	323,590	76,220	61,800	461,610
MSB	Closed	Closed	211,889	211,889
BACTEC	Closed	Closed	134,561	134,561
UNIFIL	10,640	6,656	0	17,296
Totals	2,506,865	3,144,197	3,920,418	9,571,480

In 2009, LMAC established a Clearance Review Board to examine the surface and subsurface cluster munition clearance that occurred from August 2006 to December 2008. The board consisted of personnel from LMAC, UNDP, and UNMACC. The first phase of the review analyzed clearance data and completion reports from 2006 to 2008. This was complemented by a review of the database to determine if the submunitions that had been found on cleared land could be attributed to additional clearance or whether it could be attributed to the transporting of munitions from other sites to that site for disposal. The review board also designed procedures for the RMAC to identify and review sites that had submunitions after clearance to determine the extent of contamination and residual threat. The second phase reviewed what factors may have led to cluster munitions being missed. The outcome of the review is unknown as the final report from the review board has never been released. The UNDP evaluator in August 2011 recommended the report be released because it contained important lessons learned that could be applied to current management practices at LMAC.[68]

Compliance with Article 4 of the Convention on Cluster Munitions

Under Article 4 of the Convention on Cluster Munitions, Lebanon is required to complete clearance of all areas affected by cluster munition remnants under its jurisdiction or control by 1 May 2021.

Lebanon plans to clear all cluster munitions by the end of 2016, more than four years before its Article 4 deadline. The target date is based on deploying 30 EOD teams per year. In 2011, the NGOs deployed 25 teams.[69] During a Cluster Munition Monitor field mission to Lebanon in May 2012, all stakeholders believed the 2016 target date was reasonable if funding and the number of teams stabilized or increased and the contamination estimates prove accurate.

Battle area clearance in 2011

As noted above, LMAC reported that in 2011 the LAF cleared 3.42km² of contaminated area, resulting in the destruction of 584 unexploded submunitions and 42 antipersonnel mines as well as 141,575 items of ERW.[70]

Quality management

LMAC reports that it conducts QA on all clearance by checking each ongoing task during weekly unannounced visits using its three QA teams based at the RMAC to cover the south and two teams in LMAC to cover demining in the north and Mount Lebanon.[71] AusAid, in its review of the Lebanon mine action program, found LMAC’s monitoring and QA system to be “excellent.”[72] UNMAST conducts QA of clearance by UNIFIL teams on the Blue Line.[73]

Safety of demining personnel

In 2011, one incident during clearance operations was reported. A DCA employee suffered injuries above an eye and to a leg while clearing an area of submunitions. The injuries were minor and the employee subsequently returned to work with DCA.[74]LMAC does not report casualties from incidents involving the LAF “for security reasons”.[75]

Risk Education

LMAC executes, coordinates, and supervises mine/ERW risk education (RE). A National Steering Committee on Mine Risk Education represents the various professional and political groups in the country, and the members work in the communities they represent. NPA, the Ministry of Education, and the Ministry of Social Affairs are also members.[76]

In 2011, the Ministry of Education added safety messages to the training curriculum for health educators. RE activities were conducted through scout associations and through university students volunteer networks. RE activities directly reached more than 71,000 people in south Lebanon and west Bekaa.[77]

One of the five major aims of the 2011–2020 strategic mine action plan is to keep the public informed of the danger of landmines and cluster munition remnants. The plan calls for a rapid response capacity; a training handbook; integration of RE messages into schools; and training of 600 health educators and 150 social workers from the Social Development Centers. At the end of 2020, it is planned that RE would be self-sustaining through volunteers, teachers, and social workers.[78]

[1] Lebanese Mine Action Centre (LMAC), “Lebanon Mine Action Strategy 2011–2020,” September 2011.

[2] Ibid. The World Bank reported the population in Lebanon was 4,227,597 in 2010.

[3] Response to Landmine Monitor questionnaire by Col. Rolly Fares, Head, Information Technology Section, LMAC, 28 March 2011.

[4] Results of non-technical survey provided to Landmine Monitor by Col. Rolly Fares, LMAC, Beirut, 6 May 2012.

[5] Results of non-technical survey provided to the Monitor by LMAC; and Presentation by LMAC to the National Directors and UN Advisors Meeting, Geneva, 28 March 2012.

[6] Interview with Col. Rolly Fares, LMAC, Beirut, 3 May 2012.

[7] “Syria plants landmines along Lebanon border,” The Daily Star, 13 June 2012.

[8] LMAC, “Lebanon Mine Action Strategy 2011–2020,” September 2011.

[9] Presentation by Maj. Pierre Bou Maroun, RMAC, Nabatiye, 3 May 2012.

[10] Ibid., and Presentation of 13 May 2011.

[11] Interview with Brig.-Gen. Mohammed Fehmi, Director, LMAC, Beirut, 11 May 2011.

[12] LMAC, “Lebanon Mine Action Strategy 2011–2020,” September 2011.

[13] Presentation by Maj. Pierre Bou Maroun, RMAC, Nabatiye, 4 May 2012; and interview with Ibrahim Ghossein, Program Manager, LDO, 8 May 20012.

[14] UNDP, “Mine Action in Lebanon: A Review of the Lebanon Mine Action Programme and UNDP Support to mine action in Lebanon,” Final Report, September 2011.

[15] Interview with Brig.-Gen. Mohammed Fehmi, LMAC, Beirut, 11 May 2011.

[16] LMAC, “Lebanon Mine Action Strategy 2011–2020,” September 2011, p. 4.

[17] UNDP, “Mine Action in Lebanon: A Review of the Lebanon Mine Action Programme and UNDP Support to mine action in Lebanon,” Final Report, September 2011, p. 9.

[18] UNDP, “Mine Action in Lebanon: A Review of the Lebanon Mine Action Programme and UNDP Support to mine action in Lebanon,” Final Report, September 2011.

[19] Interview with Brig.-Gen. Imad Odiemi, Director, LMAC, Beirut, 11 May 2012.

[20] UN, “2011 Portfolio of Mine Action Projects,” March 2011, New York, p. 207.

[21] Interview with Mirna Sabbagh, UNDP, Beirut, 17 May 2011.

[22] Interview with Brig.-Gen. Imad Odiemi, LMAC, Beirut, 11 May 2012.

[23] UNDP, “Mine Action in Lebanon: A Review of the Lebanon Mine Action Programme and UNDP Support to mine action in Lebanon,” Final Report, September 2011.

[24] Ibid.

[25] Ibid.

[26] Ibid., and interview with Brig.-Gen. Imad Odiemi, LMAC, Beirut, 5 May 2012.

[27] UNMAST presentation at National Directors and UN Advisors Meeting, Geneva, 23-26 March 2012.

[28] Interview with Brigadier General Imad Odiemi, LMAC, Beirut, 4 May 2012.

[29] Presentation by Maj. Pierre Bou Maroun, RMAC, Nabatiye, 4 May 2012.

[30] LMAC, “Lebanon Mine Action Strategy 2011–2020,” September 2011.

[31] Ibid.

[32] Presentation by Maj. Pierre Bou Maroun, RMAC, Nabatiye, 4 May 2012.

[33] LMAC, “Lebanon Mine Action Strategy 2011–2020,” September 2011.

[34] Interview with Mirna Sabbagh, Beirut, 4 May 2012.

[35] UNDP, “Mine Action in Lebanon: A Review of the Lebanon Mine Action Programme and UNDP Support to mine action in Lebanon,” Final Report, September 2011.

[36] Ibid.

[37] They are: DCA, FSD, HI, MAG, and NPA.

[38] UNDP, “Mine Action in Lebanon: A Review of the Lebanon Mine Action Programme and UNDP Support to mine action in Lebanon,” Final Report, September 2011.

[39] Interview with Ibrahim Ghossein, LDO, Borj Qudani, south Lebanon, 8 May 20012.

[40] Ian Mansfield, “Review of AusAid’s Mine Action Program in the Middle East,” AusAid, 2 January 2012.

[41] Interviews with Lt.-Col. Mohammad El Cheikh, LMAC, Beirut, 22 February 2010; and Col. Rolly Fares, LMAC, Beirut, 3 May 2012.

[42] EMERCOM is the Ministry of the Russian Federation for Civil Defense, Emergencies, and Elimination of Consequences of Natural Disasters.

[43] Presentation by Maj. Pierre Bou Maroun, RMAC, Nabatiye, 4 May 2012.

[44] Interview with Ibrahim Ghossein, LDO, 8 May 20012.

[45] DCA Mine Action: Lebanon, www.danchurchaid.org.

[46] Interview with Bekim Shala, Country Director, MAG, Nabatiye, 8 May 2012; and MAG, “Mechanical capacity in Lebanon,” Report, undated.

[47] Interview with Eva Veble, Programme Manager, NPA, 8 May 2012.

[48] Presentation by Jesse Amand, Operations Manager, FSD, Marjeyoun, 8 May 2012.

[49] Interview with Camille Auborg, Programme Manager, HI, Beirut, 7 May 2012.

[50] Interview with Patrick van Beuge, Program Manager, Sterling International, Beirut, 3 May 2012; and see, www.sterling-int.com.

[51] Presentation by Maj. Pierre Bou Maroun, RMAC, Nabatiye, 4 May 2012.

[52] Xinhua, “UNIFIL Marks Mine Clearance Efforts in Lebanon,” CRIEnglish.com, 5 April 2012; Presentation by UNMAST to the National Directors and UN Advisors Meeting, Geneva, 23–26 March 2012; and Response to Monitor questionnaire from Michael Hands, Programme Manager, UNMAST, 1 April 2012.

[53] Presentation by UNMAST to the National Directors and UN Advisors Meeting, Geneva, 23–26 March 2012.

[54] Presentation by Maj. Pierre Bou Maroun, RMAC, Nabatiye, 4 May 2012.

[55] LMAC, “Lebanon Mine Action Strategy 2011–2020,” September 2011.

[56] Email from Col. Rolly Fares, LMAC, 11 July 2012.

[57] Interview with Maj. Charmen Rahal, Acting Chief, Regional Mine Action Centre (RMAC), 3 June 2010; and response to Monitor questionnaire from Maj. Pierre Bou Maroun, RMAC, Nabatiye, 2 May 2012.

[58] UNDP, “Mine Action in Lebanon: A Review of the Lebanon Mine Action Programme and UNDP Support to mine action in Lebanon,” Final Report, September 2011.

[59] LMAC provided the survey results to the Monitor during a field mission in May 2012.

[60] Interview with Ibrahim Ghossein, LDO, 8 May 20012.

[61] Email from Col. Rolly Fares, LMAC,11 July 2012.

[62] Response to Monitor questionnaire from Michael Hands, UNMAST, 1 April 2012.

[63] Email from Col. Rolly Fares, LMAC, 11 July 2012.

[64] Presentation by Maj. Pierre Bou Maroun, RMAC, Nabatiye, 3 May 2012.

[65] Response to Monitor questionnaire from Michael Hands, UNMAST, 1 April 2012.

[66] Email from Armen Harutyunyan, Programme Manager, FSD, 29 July 2009; andIRIN, “Funding shortfall threatens cluster bomb demining,” Reuters, 14 May 2009.

[67] Email from Col. Rolly Fares, LMAC, 11 July 2012; Response to Monitor questionnaire by Col. Rolly Fares, LMAC, 28 March 2011; and interview with Maj. Charmen Rahal, RMAC, 3 June 2010.

[68] UNDP, “Mine Action in Lebanon: A Review of the Lebanon Mine Action Programme and UNDP Support to mine action in Lebanon,” Final Report, September 2011.

[69] Presentation by LMAC to the National Directors and UN Advisors Meeting, Geneva, 28 March 2012.

[70] Email from Col. Rolly Fares, LMAC, 11 July 2012.

[71] Interview with Lt. Patrick Choufein, Operations Officer, RMAC, Nabatiye, 16 May 2011.

[72] Ian Mansfield, “Review of AusAid’s Mine Action Program in the Middle East,” AusAid, 2 January 2012.

[73] Response to Monitor questionnaire from Michael Hands, UNMAST, 1 April 2012.

[74] Interview with Craig MacDiarmid, Operations Manager, DCA, Beirut, 7 May 2012.

[75] Interview with Col. Rolly Fares, LMAC, Beirut, 7 May 2012.

[76] Statement of Lebanon, Second Review Conference, Cartagena, 4 December 2009; and email from Lt.-Col. El Cheikh, Head, MRE Section, LMAC, 27 April 2009.

[77] Response to Monitor questionnaire from Maj. Pierre Bou Maroun, RMAC, Nabatiye, 2 May 2012.

[78] LMAC, “Lebanon Mine Action Strategy 2011–2020,” September 2011.

Last Updated: 17 December 2012

Casualties and Victim Assistance

Casualties

Casualties Overview

All known casualties by end of 2011	At least 3,674 mine/ERW casualties (900 killed; 2,774 injured)
Casualties in 2011	6 (2010: 25)
2011 casualties by outcome	2 killed; 4 injured (2010: 5 killed; 20 injured)
2011 casualties by item type	1 antivehicle mine; 3 unexploded submunitions; 1 other ERW; 1 unknown explosive item

In 2011, the Lebanon Mine Action Center (LMAC) identified six mine/explosive remnants of war (ERW) casualties.[1] All but one casualty were adult men: one boy was killed by an ERW in eastern Lebanon. Half of all casualties were caused by cluster submunitions in Southern Lebanon, including one incident involving a Syrian worker who was killed in an orchard east of Tyre.[2]

The six casualties identified in 2011 represented a significant decrease from the 25 casualties reported by LMAC in 2010.[3] Annual mine/ERW casualty rates have declined steadily from almost 100 casualties in 2000, aside from a spike in casualties in between August and December 2006, immediately following the July 2006 bombing of Southern Lebanon.[4]

The total number of mine/ERW casualties in Lebanon recorded from 1975 to December 2011 was 3,674 (900 killed; 2,774 injured). The majority of all casualties were men (2,700), almost 20% were children (709: 544 boys, 165 girls) and the remainder (265) were women.[5] The total number of recorded mine/ERW casualties was reduced from the 3,846 (900 killed, 2,946 injured) reported by LMAC in June 2011,[6] following a database review which eliminated 172 duplicate entries of survivors.[7]

As of December 2011, LMAC had registered 654 casualties (151 killed, 503 injured) from unexploded submunitions, of which 18% (120) were children at the time of the incident.[8] The Monitor identified 707 cluster munition casualties for the same time period. Little data is available on casualties that occurred during cluster munition strikes; only 16 (three people killed; 13 injured) were identified.[9]

Victim Assistance

There were at least 2,774 mine/ERW survivors in Lebanon as of December 2011.[10]

Victim Assistance since 1999

Since Monitor reporting began in 1999, the number of national and international actors involved in providing a range of victim assistance services to mine/ERW survivors throughout the country has grown, most especially following the bombing in 2006. Medical care was provided through public health facilities with other victim assistance services made available through national and international organizations dependent on international funding sources. NGO members of the national victim assistance steering committee (approximately 15) implemented programs for physical rehabilitation and for economic and social inclusion, including sports programs and some peer support. Almost no psychological support was available to survivors during this period. Barriers to accessing victim assistance services, particularly for those living in southern Lebanon, included the cost of services, the lack of affordable transportation, and/or a lack of awareness of availability. A decline in funding, which reportedly began in 2008, forced some service providers to reduce their numbers of beneficiaries; however, most reported continuing activities at similar levels despite declining funding.

Since 2001, victim assistance was coordinated through regular meetings of the national victim assistance steering committee hosted by the national mine action center. Throughout the period, Lebanon lacked a comprehensive victim assistance plan; coordination mainly consisted of information sharing among service providers. While LMAC was mostly seen to be effective in coordinating victim assistance activities, NGO service providers found that reduced funding since 2010 affected the quality of coordination and fewer coordination meetings were held. A national victim assistance plan began being developed for the first time in 2011.

Victim Assistance in 2011

In December 2011, Lebanon finalized its first national victim assistance strategy establishing targets for comprehensive victim assistance by 2020. An overall decrease in the availability of victim assistance services was identified in 2011. Services available through national NGOs decreased due to a lack of funding.

Assessing victim assistance needs

No survey of mine/ERW victims needs was conducted in 2011. LMAC continued to use and provide information collected through the national victim survey and needs assessment that was completed in 2010, and which only covered victims of incidents occurring since 2006. LMAC provided detailed information upon receiving formal requests; because of this, more general information was published and distributed widely.[11] According to a UNDP-commissioned evaluation of mine action in Lebanon, the quality of information on mine victims was excellent; however, it was “questionable whether or not the information [was] used effectively for planning.”[12]

Following the 2006 bombing, various government agencies and NGOs collected data on the needs of mine/ERW victims, family members, and communities impacted by cluster submunitions and other ERW. However, as of the end of 2011, this data had not been consolidated within a single national database.[13]

The Ministry of Social Affairs maintained a database of persons with disabilities. Disabled persons organizations (DPOs) used and updated information in the database regularly. Data was not shared with the National Steering Committee on Victim Assistance.[14]

Victim assistance coordination[15]

Government coordinating body/focal point	LMAC
Coordinating mechanism(s)	National Steering Committee on Victim Assistance, coordinated by LMAC and involving national victim assistance NGO service providers and relevant government ministries
Plan	Victim Assistance Strategy as part of Lebanon Mine Action National Strategy 2011-2020

The National Steering Committee on Victim Assistance, coordinated by LMAC, met frequently during 2011, at least monthly. However, most meetings were focused on preparations for the Second Meeting of States Parties to the Convention on Cluster Munitions, hosted by Lebanon in 2011.[16] Limited time was set aside to develop the Victim Assistance Strategy and related work plans.[17] As in 2010, NGOs continued to find bilateral meetings necessary to effectively coordinate victim assistance activities.[18]

In September 2011, a national victim assistance workshop was held that included members of the National Steering Committee, representatives of DPOs, and mine/ERW survivors. Participants in the workshop developed a set of recommendations that were presented to the House of Representatives and to LMAC to be incorporated into the Victim Assistance Strategy.[19]

During 2011, the Ministry of Social Affairs increased its participation in victim assistance coordination and committed to the establishment of a victim assistance program.[20] The role of the Ministry’s new victim assistance program and how it would coordinate with the National Victim Assistance Steering Committee had not been clarified by the end of 2011.[21] Compared with 2010, the Landmine Resource Center, a national NGO, observed an overall improvement in victim assistance coordination by the government as a result of the greater involvement by the Ministry.[22]

The Victim Assistance Strategy, part of the overall national mine action strategy, was finalized in December 2011. It was developed with input from governmental and NGO members of the National Steering Committee on Victim Assistance, including survivors.[23] The Strategy’s main objectives were to ensure that mine/ERW victims have rights-based access to all services and to include victims in socio-economic rehabilitation initiatives. The strategy sought to achieve these objectives for all victims by 2020.[24] The Victim Assistance Strategy included a budget for victim assistance activities.[25]

Lebanon provided an update on its progress and challenges in implementing victim assistance at the Convention on Cluster Munitions intersessional meetings in Geneva in April 2012, at the Second Meeting of States Parties that was held in Beirut in September 2011, and through its Convention on Cluster Munitions Article 7 report.[26] In its Article 7 report, which was developed with input from members of the National Steering Committee, Lebanon identified those victim assistance activities that were supported with national funds and those for which international assistance was needed.[27]

Survivor inclusion and participation

Survivors were included in the National Steering Committee on Victim Assistance as representatives of NGO service providers.[28] Survivors developed recommendations that were incorporated into the 10 Year Victim Assistance Strategy.[29] Survivors and their representative organizations also provided input in the preparation of Lebanon’s Convention on Cluster Munitions Article 7 report.[30] The majority of victim assistance activities were implemented by local NGOs, some of which had survivors in management positions while many involved survivors in planning activities.[31]

Service accessibility and effectiveness

Victim assistance activities[32]

Name of organization	Type of organization	Type of activity	Changes in quality/coverage of service in 2011
Ministry of Health	Government	Medical attention and prosthetics	Ongoing
Ministry of Social Affairs	Government	Disability benefits; socio-economic inclusion	Established a victim assistance unit; increased enforcement of national disability law
Landmine Resource Center (LMRC)	National NGO	Advocacy, training/capacity building for survivors	Maintained activities despite decreased funding
Al-Jarha Association for the War Wounded and Disabled in Lebanon	National NGO	Medical, physiotherapy, prosthetics production, sports activities, loans, peer support, psychological support, vocational training	Ongoing/ Decreased number of beneficiaries for physical rehabilitation services among some local NGOs due to decreased funding
Islamic Risala Scouts Association	National NGO	Ambulances and transportation, vocational training
Islamic Health Commission (IHC)	National NGO	Psychosocial support, mobility devices, loans
Lebanese Association for Health and Social Care	National NGO	Basic medical care, vocational training, etc.
Lebanese Welfare Association for the Handicapped	National NGO	All types of rehabilitation activities for people with disabilities
National Rehabilitation and Development Center (NRDC)	National NGO	Rehabilitation, psychological care, prosthetic limbs
Vision Association for Development, Rehabilitation and Care	National NGO	Prosthetic limbs workshop, loans, vocational training, psychological care, advocacy
Jezzine Landmine Survivor Development Cooperative	Cooperative	Survivor managed cooperative producing and selling eggs, chickens, and honey
World Rehabilitation Fund	International NGO	Capacity-building support and funding to the Jezzine Landmine Survivor Development Cooperative
NPA	International NGO	Advocacy, capacity-building support and funding of physical rehabilitation through local partners	Decrease in support for physical rehabilitation; maintained quality of services despite funding decrease
Lebanese Red Cross	National society	Emergency Medical attention; training in first aid and upgrading of emergency medical service stations with equipment and supplies	Ongoing; responded to increased demand for services at the Syrian border
ICRC	International organization	Increased capacity to provide adequate emergency medical response with training and supplies	Continued ongoing support

In 2011, decreased funding for public hospitals increased the cost of some medical services affecting the affordability for mine/ERW victims.[33] During the same period, the Ministry of Social Affairs increased awareness about the right for persons with disabilities to receive free medical attention under the national disability law. However, the impact of this action was not yet felt with some mine/ERW survivors reporting having been rejected for care at hospitals despite holding disability cards.[34]

Reduced international funding resulted in a decreased number of survivors benefiting from NGO-implemented physical rehabilitation programs though the quality of services was maintained during the period. This decline in the availability of services was worsened temporarily when some organizations delayed the implementation of physical rehabilitation projects from 2011 to 2012 due to their involvement in the preparations for the Convention on Cluster Munitions Second Meeting of States Parties.[35] As in previous years, physical rehabilitation was dependent on funding from external donors and national charities.[36]

No significant changes were identified in the availability of economic inclusion projects or social support, both of which were very limited compared with the level of need. Psychological support was the least developed area of assistance in Lebanon,[37] with efforts needed to overcome cultural obstacles that prevented survivors from seeking this support.[38]

While most mine/ERW survivors in Lebanon were adult males, efforts were made to ensure that women and children had access to needed services, for example by prioritizing their inclusion in NGO programs.[39]

Greater government efforts to implement the National Disability Law increased awareness of the 3% quota for all employers to hire persons with disabilities;[40] however, there was little to no impact among persons with disabilities.[41] The law required that buildings be made accessible to persons with disabilities, but changes to the building code that would have made the law operable had not been made by the end of 2011.[42]

Lebanon signed the Convention on the Rights of Persons with Disabilities on 14 June 2007.

[1] Email from Col. Rolly Fares, Head of Information Management and Victim Assistance Sections, LMAC, 30 March 2012.

[2] “Cluster bomb claims life of Syrian worker in Tyre,” The Daily Star (Beirut), 24 May 2011, www.dailystar.com.lb/News/Local-News/2011/May-24/Cluster-bomb-claims-life-of-Syrian-worker-in-Tyre.ashx#ixzz1NgALKhr7, accessed 29 May 2011.

[3] Email from Col. Rolly Fares, LMAC, 31 May 2011.

[4] 209 casualties were recorded between August and December of 2006. Presentation by Lebanon, Convention on Cluster Munitions Intersessional Meeting, Side Event, Geneva, 28 June 2011.

[5] Email from Col. Rolly Fares, LMAC, 30 March 2012.

[6] LMAC, “Cluster Munitions in Lebanon Fact Sheet,” June 2011 p. 5.

[7] Convention on Cluster Munitions Article 7 Report (for the period 27 October 2011 to 9 April 2012), Form H.

[8] Email from Col. Rolly Fares, LMAC, 30 March 2012.

^{^[9]} Prior to July 2006, 338 casualties occurred, and 369 casualties occurred between August 2006 and December 2011. It was not clear if the casualties during use were included in this total. Handicap International (HI), Circle of Impact: The Fatal Footprint of Cluster Munitions on People and Communities (Brussels: HI, May 2007), p. 121; Patrick Galey, “Living without a leg,” Bikya Masr (Nabatieh), 14 November 2009, www.bikyamasr.com; and email from Col. Rolly Fares, LMAC, 30 March 2012.

^{^[10]} Email from Col. Rolly Fares, LMAC, 30 March 2012.

[11] Response to Monitor questionnaire from Col. Rolly Fares, LMAC, 30 March 2012.

[12] UNDP, “A review of the Lebanon National Mine Action Programme and UNDP support to mine action in Lebanon,” September 2011, p. 5.

[13] Response to Monitor questionnaire from Col. Rolly Fares, LMAC, 30 March 2012.

[14] Ibid.

^{^[15]} Convention on Cluster Munitions Article 7 Report (for the period 27 October 2011 to 9 April 2012), Form H.

[16] Response to Monitor questionnaire from Khaled Yamout, MRE/MVA Program Coordinator, Norwegian People’s Aid (NPA), 17 June 2012.

[17] Responses to Monitor questionnaire from Col. Rolly Fares, LMAC, 30 March 2012; and Khaled Yamout, NPA, 17 June 2012.

[18] Response to Monitor questionnaire from Khaled Yamout, NPA, 17 June 2012.

[19] Response to Monitor questionnaire from Habbouba Aoun, Coordinator, Landmine Resource Center (LMRC), 8 March 2012.

[20] Response to Monitor questionnaire from Col. Rolly Fares, LMAC, 30 March 2012.

[21] Response to Monitor questionnaire from Khaled Yamout, NPA, 17 June 2012.

[22] Response to Monitor questionnaire from Habbouba Aoun, LMRC, 8 March 2012.

[23] Response to Monitor questionnaire from Col. Rolly Fares, LMAC, 30 March 2012.

[24] Convention on Cluster Munitions Article 7 Report (for the period 27 October 2011 to 9 April 2012), Form H.

[25] Ibid.

[26] Statement of Lebanon, Convention on Cluster Munitions Intersessional Meeting, Working group on Victim Assistance, Geneva, 16 April 2012; Statement of Lebanon, Convention on Cluster Munitions Second Meeting of States Parties, Beirut, 15 September 2011; and Convention on Cluster Munitions Article 7 Report (for the period 27 October 2011 to 9 April 2012), Form H.

[27] Response to Monitor questionnaire from Col. Rolly Fares, LMAC, 30 March 2012; and Convention on Cluster Munitions Article 7 Report (for the period 27 October 2011 to 9 April 2012), Form H.

^{^[28]} Interview with Ziad Khwaiss, Mine Risk Education and Victim Assistance Coordinator, National Rehabilitation and Development Center (NRDC), Beirut, 24 February 2010; and response to Monitor questionnaire by Khaled Yamout, NPA, 15 May 2011.

[29] Response to Monitor questionnaire from Habbouba Aoun, LMRC, 8 March 2012.

[30] Response to Monitor questionnaire from Col. Rolly Fares, LMAC, 30 March 2012.

^{^[31]} Ibid.; and Khaled Yamout, NPA, 17 June 2012.

[32] ICRC, “Annual Report 2011,” Geneva, May 2012, p. 397; email from Col. Fares, LMAC, 31 May 2011; and responses to Monitor questionnaire from Col. Rolly Fares, LMAC, 30 March 2012; Habbouba Aoun, LMRC, 8 March 2012; and Khaled Yamout, NPA, 17 June 2012.

[33] Response to Monitor questionnaire from Habbouba Aoun, LMRC, 8 March 2012.

[34] Response to Monitor questionnaire from Khaled Yamout, NPA, 17 June 2012.

[35] Ibid.

[36] Response to Monitor questionnaire from Col. Rolly Fares, LMAC, 30 March 2012.

[37] Ibid.

[38] Response to Monitor questionnaire from Khaled Yamout, NPA, 17 June 2012.

[39] Ibid.

[40] Ibid.

[41] US Department of State, “2011 Country Reports on Human Rights Practices: Lebanon,” Washington, DC, 24 May 2012; and response to Monitor questionnaire from Khaled Yamout, NPA, 17 June 2012.

[42] US Department of State, “2011 Country Reports on Human Rights Practices: Lebanon,” Washington, DC, 24 May 2012.

Last Updated: 15 October 2012

Support for Mine Action

Since 2008, the government of Lebanon has contributed US$6.5 million each year toward its mine action program for Lebanese Armed Forces personnel, vehicles, communications, and medical care.[1] Other government support has not been reported. The Ministry of Health provides medical care to survivors, the Ministry of Social Affairs provides rehabilitation services, and the Ministry of Education supports risk education (RE) through its trained health and teaching personnel.[2]

In 2011, contributions from 10 international donors for clearance and victim assistance (VA), RE, and advocacy activities in Lebanon totaled US$11.1 million.[3] The contributions from Spain, Austria, Japan and South Korea went through the ITF Enhancing Human Security (formerly the International Trust Fund for Demining and Mine Victims Assistance; hereinafter, ITF) while United States (US) funding supported five NGO clearance operators and a victim assistance project with the World Rehabilitation Fund and the Jezzine Landmine Survivor Development Cooperative.[4] The Islamic Republic of Iran, through the Iranian organization, Immen Sazan Omran Pars (ISOP) provided $2.5 million for seven Explosive Ordnance Disposal teams in the Peace Generation (POD), a national NGO in southern Lebanon.[5]

In 2010, the European Commission (EC) awarded €6.9 million (US$9.2 million) to five NGOs and UNDP in Lebanon for clearance and capacity-building for the Lebanon Mine Action Center (LMAC).[6] The EC did not contribute new funding in 2011. In September 2012, the EC in Lebanon planned to issue a tender valued at €10 million ($13.9 million) for 2013–2015 covering landmine and cluster munition clearance.[7] As of 13 September 2012, the tender had not been released.

The memorandum of understanding (MoU) between Lebanon and the UN Interim Force in Lebanon (UNIFIL) outlining responsibilities for humanitarian demining expired in December 2010; as of May 2012 a new MoU was still under discussion with the Ministry of Defense.[8] In October 2011, the UN Mine Action Coordination Center was renamed the UN Mine Action Support Team (UNMAST) and reduced its personnel significantly. Since October 2011, UNIFIL has no longer been conducting humanitarian demining.[9] UNMAST funding was secured through the assessed peacekeeping budget (US$1.4 million) and the UN Voluntary Trust Fund ($91,000).[10]

In May 2010, the LMAC entered into a strategic partnership with Blom Bank, the largest bank in Lebanon, whereby a percentage of the cardholders’ annual fees and retailers’ transaction fees related to the Blom Bank MasterCard goes to the Ministry of Defense for mine clearance. A committee in the Ministry of Defense is responsible for awarding contracts using the funds from Blom Bank. As of May 2012, more than US$376,000 had been raised including $209,000 in 2011 for clearance and equipment. Blom Bank also funded a $1 million nationwide RE campaign and produced television ads promoting the special credit card.[11]

International contributions in 2011[12]

Donor	Sector	Amount (national currency)	Amount (US$)
US	Clearance, victim assistance	$3,025,000	3,025,000
Norway	Clearance	NOK16,400,000	2,927,421
Iran	Clearance	US$2,520,000	2,520,000
Australia	Clearance	A$800,000	826,560
Spain	Clearance	€520,000	724,412
Germany	Clearance	€499,072	695,257
Italy	Advocacy	€180,000	250,758
Japan	Clearance	¥5,672,568	71,174
Austria	Victim assistance	€40,000	55,724
South Korea	Clearance	US$40,000	40,000
Total			11,136,306

Summary of contributions in 2007–2011 (US$)[13]

Year	National contributions	International contributions	Total budget
2011	6,500,000	11,136,306	17,636,306
2010	6,500,000	20,870,842	27,370,842
2009	6,500,000	21,210,204	27,710,204
2008	5,500,000	27,768,536	33,268,536
2007	5,500,000	28,338,812	33,838,812
Totals	30,500,000	109,324,700	139,824,700

[1] UNDP, “Mine Action in Lebanon: A Review of the Lebanon Mine Action Programme and UNDP Support to mine action in Lebanon,” Final Report, September 2011; and interview with Brig.-Gen. Imad Odiemi, LMAC, Beirut, 5 May 2012.

[2] UNDP, “Mine Action in Lebanon: A Review of the Lebanon Mine Action Programme and UNDP Support to mine action in Lebanon,” Final Report, September 2011, p. 15.

[3] Response to Monitor questionnaire by Christine Pahlman, Mine Action Coordinator, AusAID, 24 April 2012; response to Monitor questionnaire by Wolfgang Bányai, Unit for Arms Control and Disarmament in the framework of the UN, Federal Ministry for European and International Affairs, Austria, 1 March 2012; interview with Col. Rolly Fares, Head, Information Technology Section, Lebanon Mine Action Center, 5 May 2012; response to Monitor questionnaire by Lt.-Col. Klaus Koppetsch, Desk Officer Mine Action, German Federal Foreign Office, 20 April 2012; US Department of State, “To Walk the Earth in Safety 2011,” Washington, DC, July 2012; ITF Enhancing Human Security (ITF), “Donors: Donations Overview: All, 2011;” response to Monitor questionnaire by Ingunn Vatne, Senior Advisor, Department for Human Rights, Democracy and Humanitarian Assistance, Norwegian Ministry of Foreign Affairs, 15 March 2012; and Spain Mine Ban Treaty Article 7 Report, Form J, March 2012.

[4] US Department of State, “To Walk the Earth in Safety 2011,” Washington, DC, July 2012; and ITF Enhancing Human Security (ITF), “Donors: Donations Overview: All, 2011.”

[5] Interviews with Lt.-Col. Mohammad El Cheikh, LMAC, Beirut, 22 February 2010; and Col. Rolly Fares, LMAC, Beirut, 3 May 2012.

[6] Email from Sandrine Petroni, Attaché, Head of Programmes, EC, Beirut, 30 June 2011.

[7] European Commission, “EU announces new support for Lebanon,” Press Release, Brussels, 13 July 2012.

[8] Interview with Brig.-Gen. Imad Odiemi, LMAC, Beirut, 4 May 2012.

[9] Presentation by Maj. Pierre Bou Maroun, RMAC, Nabatiye, 4 May 2012.

[10] “UNMAS Annual Report 2011,” p. 34.

[11] Response to Monitor questionnaire from Maj. Pierre Bou Maroun, RMAC, Nabatiye, 2 May 2012; Blom Bank, “Blom Bank Launches the Blom Mastercard Giving Affinity Card In collaboration with the Lebanese Mine Action Center, a unit of the Lebanese ARM,” Press release, 20 May 2010, Beirut; and interviews with Brig.-Gen. Mohammed Fehmi, LMAC, Beirut, 24 August 2010 and 12 May 2011.

[12] Average exchange rates for 2011: A$1=US$1.0332; €1= US$1.3931; NOK5.6022 = US$1; ¥79.7 = US$1. US Federal Reserve, “List of Exchange Rates (Annual),” 3 January 2012.

[13] ICBL-CMC, “Country Profile: Lebanon: Support for Mine Action,” www.the-monitor.org, 29 July 2010.