Not a State Party to the Mine Ban Treaty 

Convention on Cluster Munitions Article 4 deadline: 1 May 2021
(Not on track to meet deadline)

Recommendations for action

• Lebanon should clarify the extent of remaining cluster munition contamination and mobilize the necessary resources to finish clearance.
• Lebanon should commit to clearance of all mined areas on its territory.

Contamination

The Republic of Lebanon is contaminated with mines and explosive remnants of war (ERW), largely a legacy of 15 years of earlier civil conflict and Israeli invasions of south Lebanon (in 1978 and 1982) and subsequent occupations that ended in May 2000. Cluster munition contamination is mainly the result of the conflict with Israel from July–August 2006, although some remnants are from conflicts in the 1980s.[1]

Mine contamination

At the end of 2014, Lebanon had almost 29.5km² of confirmed hazardous areas (CHAs) containing mines, not including the Blue Line,[2] as set out in the table below. Five regions of Lebanon still have CHAs containing mines.[3] Of this, 1.28km² of mined area cleared in 2014 had not been entered into the Information Management System for Mine Action (IMSMA) database as of late 2015, which would reduce the contamination estimate to some 28.2km².[4] A further 178 “dangerous areas” totaling 8.8km² are suspected to contain either cluster munition remnants or mines. The Lebanon Mine Action Centre (LMAC) is in the process of classifying these more accurately. 

Mine contamination by province as of end 2014[5]

Mines affect the north and south of the country, though most contamination is found in the south. LMAC had earlier identified 2,598 suspected hazardous areas (SHAs) containing mines over 191km² in Batroun, Chouf, Jbeil, and Jezzine, north of the Litani River, in the Bekaa valley, and across Mount Lebanon.[6]

Data refinement (which removed duplicate entries of areas that had been cleared or re-cleared), along with survey and clearance, has since significantly reduced the problem. The mid-term review of Lebanon’s 2011–2020 national strategy stated that as of end September 2013, of the total 44.5km² of SHA containing mines (excluding the Blue Line), almost 21.5km² (48%) had been cleared and 23km² (52%) remained.[7] The review also reported that, as of 2013, one-quarter of the 9.5km² of Blue Line minefields had been cleared leaving almost 7.3km² to release.[8] According to the mid-term review, clearance of Blue Line minefields was behind target, due to underfunding and political decisions.[9]

The end of 2014 estimate of 28.2km² (taking into account clearance, and excluding the Blue Line) is a significant increase on the 23km² estimate of September 2013.[10] LMAC has attributed this to discovery of new mined areas and refinement of LMAC’s database to bring it in line with the revised International Mine Action Standards (IMAS) Land Release guidelines.[11]

Mine contamination hinders socio-economic development, restricting access to land and productive resources. Most contaminated land is valuable for agriculture, and contamination prevents safe access to land.[12]

Cluster munition contamination

Lebanon has 799 areas confirmed or suspected to contain cluster munition remnants totaling 17.85km², as of the end of 2014. Of this total, 51 areas totaling more than 1.71km² were due to be cancelled by LMAC, which would reduce the contamination estimate to 16.14km².[13] As mentioned above, a further 178 “dangerous areas” totaling 8.82km² are also suspected to contain either cluster munition remnants or mine contamination.[14]

Cluster munition remnant contamination as of end 2014[15]

After the 2006 conflict, contamination was initially estimated to be 55km². This estimate was later increased, based on surveys conducted, to 57.8km² across 1,484 areas over the three regions of Beqaa, Mount Lebanon (Jabal Loubnan), and southern Lebanon (al Janoub).[16] In 2014, as part of a 2013 milestone review to the 2011–2020 mine action strategy, LMAC reported the total number of strike locations as 1,707.[17]

At the end of 2014, contamination was reported to cover 17.85km² across 799 areas,[18] compared to reported contamination of 17km² over 748 areas as of June 2014.[19] LMAC’s director explained that the June 2014 estimate referred to confirmed, rather than suspected, cluster munition contamination.[20] The increase in reported contamination between June and December 2014 was due to the discovery of 24 new cluster munition-contaminated areas.[21] 

LMAC initially records each new cluster bomb strike discovered as contaminating an estimated area of 33,000m². Upon subsequent survey and clearance, the precise area of contamination may be found to be lesser or greater, depending on the type of cluster munition used, and whether the weapon was ground-launched or dropped from an aircraft. According to LMAC, some areas contain contamination resulting from both ground-launched and air-dropped cluster munitions, which can further complicate accurate determination of the footprint of the strike.[22] 

During clearance, operations tasks may be subdivided by LMAC into the main cluster strike area; the “fade out” area; a “disclaimed” area (which refers to areas for which permission is not granted by the landowner for clearance, and which require signed release papers); and the “uncleared” area, for which mechanical assets are required for clearance. If clearance of the whole task does not take place at the same time, the “fade out,” “disclaimed,” and/or “uncleared” areas are marked as separate tasks, which helps explain the fluctuation in number of hazardous areas between reporting periods.[23]

Cluster munition remnants continue to affect the agricultural community, particularly in Beqaa and southern Lebanon. A survey by Mines Advisory Group (MAG) of 347 tasks recommended for clearance revealed that in four-fifths, contamination had made access to resources unsafe or had blocked access altogether. Yet significant numbers of landowners and workers still enter contaminated areas, declaring they have no choice.[24]

Post-clearance surveys concerning cluster strike areas by LMAC in collaboration with clearance operators revealed that 78% of land was used for agriculture, 15% for pasture, with the remainder used for residential and infrastructure development.[25]

Other explosive remnants of war

Lebanon is also contaminated by other unexploded ordinance (UXO) and booby-traps. In 2014, LMAC reported 93 areas totaling 2.89km², which were suspected to contain booby-traps, not all of which fall under the Mine Ban Treaty definition of an antipersonnel mine, and 54 areas totaling more than 3.1km², which were suspected to contain UXO.[26]

Program Management 

The Lebanon Mine Action Authority (LMAA), established in 1998 by the Council of Ministers, is the responsibility of the Ministry of Defense and is chaired by the Minster of Defense. The LMAA has overall responsibility for Lebanon’s mine action program. In 2007, a national mine action policy outlined the structure, roles, and responsibilities within the program, and LMAC was tasked to execute and coordinate the program on behalf of the LMAA.[27]

LMAC, which is part of the Lebanese Armed Forces (LAF),[28] is based in Beirut. Since 2009, a regional base in Nabatiyeh has overseen operations in southern Lebanon.[29] LMAC is supported by a UNDP advisor. LMAC also manages risk education and victim assistance.[30]

In 2015, the Ministry of Defense, represented by LMAC, and the Geneva International Centre for Humanitarian Demining (GICHD), signed a Memorandum of Understanding (MoU) to manage and coordinate the Arabic Outreach Programme for Mine Action. Planning, management, and coordination of the program will be handed over to LMAC by the end of 2017, and LMAC, through the Regional School for Humanitarian Demining in Lebanon (RSHDL) will constitute a regional center for the program’s activities.[31] 

Strategic planning

In September 2011, LMAC adopted a strategic mine action plan for 2011–2020.[32] The plan called for clearance of all cluster munition remnants by 2016, and for completion of mine clearance outside the Blue Line by 2020. Both goals are dependent on capacity and progress has fallen well short of planning targets.[33] A review to the strategy was conducted in January–March 2014 to assess progress towards the 2013 milestone, and to adjust the 2016 and 2020 milestones accordingly. The review found that found that in 2011–2013 mine clearance and clearance of cluster munition remnants was slow, suffering from underfunding and fewer operating teams than foreseen, while previously unreported contaminated areas were identified.[34] Demining the area bordering Israel is said to be dependent on “political developments” that will allow the LAF to conduct technical survey and clearance.[35]

Lebanon has set three levels of priority for mine action operations. The first is to address infrastructure to allow those displaced by the 2006 conflict to return home; the second is to release agricultural land; and the third is to release land for activities other than agriculture. The first priority goals were met in 2009, and clearance of agricultural and development areas are now the priority targets.[36]

Operators

In 2014, the LAF and international operators DanChurchAid (DCA) and MAG conducted clearance of both landmines and cluster munition remnants.[37] International operator, Handicap International (HI), conducted mine clearance only. International operator Norwegian People’s Aid (NPA) and national operator, Peace Generation Organization for Demining (POD), conducted clearance of cluster munition remnants only. 

A total of 11 mine clearance teams (nine teams working for international NGOs and two working for LAF/Engineering Regiment (ER)), four mechanical teams (LAF/ER), and seven mine detection dog (MDD) teams (LAF/ER) were operating in Lebanon in 2014.[38] In 2014, three battle area clearance (BAC) teams were deployed by DCA, six by MAG, and seven by NPA.[39] Lebanon’s overall BAC capacity dropped from 28 teams at the start of 2013 to 23 teams in 2014.[40] MAG is the only international operator in Lebanon with mechanical assets to support manual clearance operations.[41]

LMAC has consistently raised concerns over lack of survey and clearance capacity, which it ascribes to inadequate funding.[42] The Swiss Foundation for Mine Action (FSD) closed its cluster munition clearance program in March 2013 due to lack of funding.[43] 

The UN Interim Force in Lebanon (UNIFIL) was established in 1978[44] to confirm withdrawal of Israeli forces from southern Lebanon (which occurred only in 2000), restore international peace and security, and to assist the government of Lebanon in re-establishing its authority in the area.[45] The primary task of UNIFIL mine clearance teams has been to clear access lanes through minefields in order to visibly demarcate the 118km-long Blue Line. UNIFIL does not generally conduct clearance on the Blue Line for humanitarian purposes but only to facilitate placement of markers by clearing three-meter-wide lanes into mined areas.[46] A total of 306 demining personnel were validated by the UN Mine Action Support Team (UNMAST) during 2014, which consisted of six rotations of the UNIFIL troop contributing countries (TCCs). Only one mechanical team was deployed, by the Cambodian Field Engineering Platoon.

At the beginning of 2014, operational assets consisted of 10 demining teams provided by Belgium, Cambodia, China, and Italy. During 2014, the Italian Combat Engineering Platoon ceased its demining operations, and in December, Belgium’s Multi-Role Combat Engineering Platoon ended its peacekeeping efforts in south Lebanon. The resulting reduction in capacity from 10 to seven demining teams is said to have slowed the demarcation process.[47] UNIFIL expected to maintain that capacity throughout 2015.[48]

UNMAST, a project of the UN Mine Action Service (UNMAS), coordinates mine clearance operations with LMAC. It trains the UNIFIL demining units and monitors and validates UNIFIL mine clearance on the Blue Line to ensure it complies with the IMAS.[49] It also assists LMAC in resource mobilization. UNMAST operating funds come from UNIFIL’s assessed peacekeeping budget.[50] 

Standards

Lebanon developed National Mine Action Standards (NMAS) in 2010.[51] LMAC is currently working with UNDP and other partners to revise the NMAS, with a view to ensuring enhanced efficiency while respecting the IMAS.[52] LMAC expected to finish the revision by the end of 2015.[53] 

Safety of clearance personnel 

In September 2014, a HI employee was injured in a mine accident that occurred while the employee was inspecting a detector signal.[54]

In 2014, three accidents occurred during survey and clearance of cluster munition remnants. In January 2014, an NPA searcher accidentally detonated a M42 submunition with the end of a saw during vegetation removal drills. The detonation injured himself and the site supervisor who was standing nearby. In May 2014, an NPA searcher accidently detonated a BLU-63 submunition while conducting rubble/rock-removal drills in order to search beneath them. Despite timely medical evacuation, his injuries proved fatal.[55] In December 2014, a MAG searcher was injured as a result of the explosion of a submunition during clearance operations.[56] 

Land Release (Mines)

The total mined area released by clearance in 2014 was almost 1.28km², compared with 0.54km² in 2013. A further 0.8km² was cancelled in 2014 by non-technical survey.

Survey in 2014 (mines)

In 2014, the LAF cancelled 30 SHAs totaling 808,107m² through non-technical survey. This marks a significant increase over the 34,391m² cancelled in two SHAs in 2013.[57] In addition, in 2014, 141 SHAs totaling 1,355,479m² were confirmed as mined.[58] An increase in population and relocation of some families to previously deserted areas led to discovery of new targets for survey along with an increased risk of accidents.[59] 

Clearance in 2014 (mines)

Lebanon reported clearance of almost 1.28km² of mined area in 2014, destroying 645 antipersonnel mines and 38 items of UXO (see table below). 

Mine clearance in 2014[60]

Note: * NPA mine clearance in 2014 was the result of a call-out from the local community.

UNIFIL reported destruction of 178 antipersonnel mines during their 2014 operations on the Blue Line.[61] Furthermore, 390 antipersonnel mines were destroyed during BAC by the LAF.[62]

The 1.28km² cleared in 2014 marks a significant increase compared to 2013 when clearance of 28 mined areas over almost 0.54km² destroyed 12 antipersonnel mines, six antivehicle mines, and 294 items of UXO.[63]

HI explained that the increased mine clearance in 2014 compared to the previous year was due to an additional operational team and a mild winter that resulted in loss of only a few days due to bad weather.[64] 

Land Release (Cluster Munition Remnants)

The total amount of cluster munition-contaminated area released by clearance in 2014 was 2.1km²,[65] compared with almost 2.5km² in 2013.[66] No area was reported as released by technical survey in 2014, but a further 1.7km² was cancelled by non-technical survey.[67] 

Survey in 2014 (cluster munition remnants)

MAG conducted a survey of 443 clearance tasks between September 2013 and April 2014, and as a result, recommended that 96 tasks be cancelled, covering an estimated 2.8km², and that the remaining 347 tasks be cleared.[68] In 2014, LMAC decided to cancel 51 of the tasks recommended for cancellation, totaling an area of 1.7km². Forty-nine of these areas are in the Nabatiyeh province, and the other two areas are in Beqaa.[69] As of June 2015, these tasks were awaiting entry into LMAC’s database, pending consultation with MAG.[70] LMAC decided not to cancel the remaining 45 tasks as, following a review, LMAC believes these areas do contain cluster munition contamination.[71] 

Furthermore, between June and December 2014, LMAC confirmed 24 new areas as cluster munition contaminated. The new tasks were the result of call-outs from the public, alerting LMAC to previously undiscovered explosive remnants of war (ERW). LMAC community liaison officers visited each call-out, followed by LMAC’s chief of operations when necessary. New hazardous areas were recorded for those call-outs where cluster munition contamination was confirmed.[72] 

Clearance in 2014 (cluster munition remnants)

Lebanon reported clearance of 2.1km² of cluster munition-contaminated land in 2014 across 51 areas, with the destruction of 2,750 submunitions, 610 other items of UXO, and 390 antipersonnel mines (see table below).

The 0.37km² decrease in 2014 clearance compared to the previous year was ascribed to the lower number of BAC teams.[73] Operational efficiency reportedly became more difficult in 2014, as tasks assigned by LMAC included challenging ground conditions, areas of extremely high metal contamination, thick vegetation, laterite or mineralized soil, and difficult relief and topography.[74]

Clearance of cluster munition remnant-contaminated area in 2014[75]

Note: * LAF = Lebanese Armed Forces. The LAF destroyed all cluster munition remnants, antipersonnel mines, and UXO during rapid response operations. 

Relation to Mine Ban Treaty Article 5

Clearance of mined areas was expected to be completed by the end of 2020, in accordance with the 2011–2020 national strategy.[76] However, meeting this target was contingent on deployment of optimal resources, comprising an estimated 125 manual clearance teams, two mechanical teams, and nine two-strong MDD teams needed for mine clearance.[77] Current mine clearance capacity is far lower than this.

In addition, as demining teams complete clearance of higher-priority tasks and move to more remote areas, the harder terrain and quality of soil are said to directly affect productivity and reduce clearance rates.[78] Furthermore, in accordance with the NMAS, the current search/clearance depth for mines in Lebanon is 20cm. Technical challenges still make it difficult for some demining teams to reach the desired level of productivity due to the depth of old mines.[79] 

Lebanon has cleared almost 4.5km² of mined area in the last five years, as detailed in the table below.

Mine clearance in 2010–2014[80]

In 2015, LMAC expected a decrease in funding, as indicated by donors, resulting in a reduction in capacity and overall productivity. The lower funding is ascribed to varying exchange rates as well as a shift in regional donor priorities.[81]

According to LMAC, in order for Lebanon to complete mine clearance in line with 2011–2020 strategy, the international community needs to show increased commitment. Based on current capacity, LMAC reports that Lebanon is not on track to complete mine clearance by the end of 2020, and for this to be achieved, it would need 138 clearance teams.[82]

Lebanon has also stated that the timeframe for completion of clearance might also be affected by the new discovery of contaminated land.[83] Lebanon will conduct a second mid-term review in 2016 and will update findings accordingly.

Convention on Cluster Munitions Article 4 Compliance

Under Article 4 of the Convention on Cluster Munitions, Lebanon is required to destroy all cluster munition remnants in areas under its jurisdiction or control as soon as possible, but not later than 1 May 2021. Lebanon does not appear to be on track to meet this deadline.

Clearance of cluster munition-contaminated land was expected to be completed by the end of 2016, in accordance with the 2011–2020 national strategy.[84] Meeting this target was, however, contingent on maintaining the number of BAC teams needed.[85] In May 2012, stakeholders believed the 2016 target date was reasonable if both funding and the number of teams stabilized or increased, and if contamination estimates proved accurate. Lebanon’s most recent Article 7 report (for 2013) indicates that 43 BAC teams are needed to complete clearance of cluster munition remnants in a timely manner.[86] 

With the exception of 2012, annual clearance of cluster munition-contaminated land has slowly decreased over the last five years, as illustrated in the table below.

Clearance of contaminated area in 2010–2014

A review of the 2011–2020 strategy in early 2014 confirmed that under existing capacity it will not be possible to finish cluster munition clearance before 2020 at the earliest.[87] Reasons cited for the delay are lack of funding and shortages in the number of teams, in addition to the identification of previously unrecorded contamination.[88]