PROPOSAL FOR FUNDING
TO THE BELGIAN GOVERNMENT
From the
INTERNATIONAL COMMITTEE OF THE RED CROSS
Summary
Applicant Organisation:
International Committee of the Red Cross,
19 Avenue de la Paix,
CH-1202 GENEVA
Contact person:
Nicolas Roggo
Head of Unit,
External Resources Division,
+41 22 730 2181 (direct)
nroggo@icrc.org
Date of submission:
16 December 2014
Zone of operation:
Middle East
Country:
Lebanon
Programme:
ICRC activities in Lebanon
Duration:
12 months
Amount requested:
2'000'000 EUR
1
LEBANON
The ICRC has been present in Lebanon since the 1967 Arab-Israeli war. With the
Lebanese Red Cross, it works to protect and assist civilians affected by armed conflict and
other situations of violence. It facilitates access to water and provides medical care and
other relief to refugees who fled the armed conflict in the Syrian Arab Republic. It visits
detainees; offers family-links services, notably to foreign detainees and refugees; works
with those concerned to address the plight of the families of the missing; and promotes IHL
compliance across Lebanon.
1. Context
Lebanon remains without a formal government, with socio-political tensions exacerbated by
the ongoing armed conflict in the Syrian Arab Republic (hereafter Syria). Its service-oriented
economy continues to decline in light of political and regional developments. The presence of
hundreds of thousands of refugees from Syria is stretching Lebanon’s resources, as well as the
capacities of organizations assisting them, including UN agencies.
2
Security within Lebanon, endangered by the Syrian conflict, is precarious, with
intercommunal clashes occurring in the Bekaa Valley, Saida and Tripoli. The Lebanese
Armed Forces (LAF) routinely intervene to restore calm in these areas. Hezbollah has
confirmed its forces’ participation in the armed conflict in Syria.
Palestinian refugees contend with difficult living conditions and persistent tensions in refugee
camps.
Hundreds of unresolved cases of people unaccounted for in relation to past conflicts in
Lebanon continue to cause deep anguish for the families concerned.
2. Humanitarian Response and ICRC action and results
In 2014, the ICRC delegation in Lebanon will support countrywide emergency preparedness
and response in relation to the humanitarian consequences of the armed conflict in Syria and
other situations of violence. Efforts to encourage the authorities to enhance detainees’
treatment and living conditions and to recognize the needs of families of missing persons will
continue.
In a subsidiary role in relation to the authorities and UNHCR, the ICRC will help address the
most pressing humanitarian needs of refugees fleeing the armed conflict in neighbouring
Syria. It will help weapon-wounded Syrians receive timely emergency/surgical care by
supporting the Lebanese Red Cross’s EMS in the provision of first aid and the evacuation of
patients and by financing the surgical treatment of those critically injured. In poorly served
host communities, residents and refugees will have adequate access to clean water following
the ICRC-supported rehabilitation/upgrade of key infrastructure. Unassisted Syrian refugees,
Palestinian refugees from Syria, and Lebanese returnees will receive food and hygiene items,
enabling them to cover their needs for one month.
To help boost local emergency preparedness in violence-prone areas, the ICRC will support
first-aid training for volunteers and weapon bearers, including Palestinian groups. Through
workshops, it will help the Lebanese Red Cross and other EMS providers enhance their
capacities to manage mass casualties and will enable surgeons working in key hospitals in the
Bekaa Valley and northern Lebanon, as well as military surgeons, to practice war-surgery
skills. Medicines and other supplies will be available for distribution to hospitals in case of
mass-casualty emergencies.
The ICRC will remind the authorities of the protection afforded to people fleeing the Syrian
conflict under the principle of non-refoulement and applicable law. The delegation will also
share reports of humanitarian and protection concerns from Syrian refugees who have fled
into Lebanon to the ICRC delegation in Syria.
Following regular visits to detainees, including the individual follow-up of security detainees,
the ICRC will encourage the authorities to ensure that all inmates are afforded treatment and
living conditions in line with international law and internationally recognized standards. In
parallel, it will provide the authorities with expertise and ad hoc assistance in enhancing
detainees’ material conditions and access to health services, including for their psychological
well-being.
Based on a report submitted to the authorities and other stakeholders in 2013, the ICRC will
continue to encourage them to recognize/address the needs of families of persons missing
from past conflicts. Furthermore, it will continue to collect ante-disappearance data on
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missing persons and support the Internal Security Forces’ (ISF) forensic laboratory in
collecting/storing biological reference samples for DNA testing, in view of a future
mechanism to inform families of the fate of their missing relatives.
Family-links services will remain available to detainees, refugees and migrants to help them
exchange news with relatives in Lebanon or in countries affected by conflict or natural
disaster. The National Society will receive support in developing its capacity in this field.
To promote humanitarian principles, IHL and the goals of the Health Care in Danger project
and to foster acceptance of its activities for conflict/violence-affected people, the ICRC will
strengthen its networks with the authorities, weapon bearers, community/religious leaders,
NGOs, media representatives and other civil society actors, engaging with them through
dedicated seminars/workshops and dissemination sessions.
The ICRC will continue to coordinate with Movement partners, UN agencies and other
humanitarian actors in fields of common interest, in order to identify unmet needs, maximize
impact and avoid duplication.
3. Humanitarian issues and ICRC objectives
Civilians
Violent incidents often compromise the safety of the population, including medical
staff/facilities.
Besides Syrian refugees, people fleeing the conflict in Syria include Palestinian refugees and
Lebanese returnees. Most arrive with few or no belongings and fear for their safety, having
lost family members or their homes in Syria. In the absence of government-established camps,
refugees live with host communities all over the country, making it difficult for aid to reach
them in a timely manner. Tensions arise between residents and refugees over scarce resources.
Lebanese families with relatives who fled to Israel after Israeli forces ended the occupation of
southern Lebanon in 2000, as well as migrant workers, refugees and other foreigners, find it
difficult to stay in contact with their relatives.
Families of thousands of people still unaccounted for in relation to past conflicts in Lebanon
have particular needs that are often unmet. Families of Lebanese and foreign nationals killed
in past conflicts in the region wish to recover the remains of their relatives.
Objective
 People in Lebanon, including refugees, are protected and respected in conformity with
applicable law and can cover their basic needs. Family members exchange news with
relatives living, arrested or detained/interned abroad, and are reunited if they so wish.
They receive information about missing relatives and, if they are dead, take possession of
the remains; their specific needs are met.
Plan of action and indicators
Protection
 Through networking and dialogue, remind all weapon bearers of their obligations
under applicable law and norms to ensure respect for the population, including patients
and medical workers (see Wounded and sick), and of the protection afforded to
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persons fleeing the conflict in Syria under the principle of non-refoulement; in case of
violence, report documented allegations of violations/abuses to the pertinent parties
for investigation and follow-up action to prevent their recurrence
 through interviews with refugees, document humanitarian concerns in Syria to support
the ICRC’s humanitarian dialogue with the parties to the Syrian armed conflict
Restoring family links
 through ICRC/National Society tracing and RCM services, enable people in Lebanon,
notably refugees, migrants and other foreigners, to re-establish/maintain contact with
relatives living, arrested or detained/interned abroad, particularly in countries affected
by armed conflict, other situations of violence or natural disaster
 help the Lebanese Red Cross develop its capacity to provide family-links services
through training/coaching and financial support for its newly established family-links
department
 acting as a neutral intermediary, facilitate the repatriation of Lebanese nationals who
wish to return home from Israel and of the remains of Lebanese nationals who die in
Israel
Missing persons
 to increase the future likelihood of families receiving information on the fate of
missing relatives and, if deceased, being able to take possession of their remains:
o collect and preserve ante-disappearance data from some 800 families of missing
persons
o through training, material and logistical support, help the Internal Security Force
(ISF) laboratory ensure that biological reference samples, needed from relatives of
the missing for future identification efforts, are collected/stored according to
internationally recognized standards
o encourage the authorities to establish a forensic identification process supported by
a national mechanism; help them increase their knowledge of related preparatory
steps, such as mapping and identification/protection of mass graves
o through training and material support, help the authorities enhance local capacities
in identifying and handling/managing human remains
 on the basis of a comprehensive needs assessment report shared with the authorities
and other stakeholders in 2013:
o encourage the authorities to take steps to recognize/address the needs of families of
missing persons, including through legislation protecting the rights of missing
persons and their families
o mobilize and support local associations/NGOs in providing psychological and
social assistance to the families of missing persons
Assistance
Economic security
 help up to 50,000 unassisted refugees (10,000 households) to partially cover their
basic needs for one month through the distribution, in coordination with the authorities
and other humanitarian actors, of a food parcel and household essentials, including
hygiene kits, nappies, blankets, mattresses and tarpaulins
Water and habitat
 help ensure that up to 400,000 residents and refugees have adequate access to clean
water by providing technical and material support to local water boards in
upgrading/rehabilitating and operating water schemes in communities hosting large
refugee populations
5
People deprived of their freedom
Most security detainees are held in Interior Ministry-run prisons, as the plan to transfer
penitentiary authority to the Justice Ministry remains uncertain. The Defence Ministry also
holds detainees.
Respect for judicial guarantees and for the principle of non-refoulement of released
foreigners, overcrowding and lack of access to health care continue to be issues of concern.
Detained migrants and other foreigners, including Syrian refugees, find it difficult to
communicate with relatives.
Objective
 Detainees are afforded treatment and living conditions, including respect for judicial
guarantees and the principle of non-refoulement, that comply with international law and
internationally recognized standards. They are able to restore/maintain contact with
relatives.
Plan of action and indicators
Protection
 following regular visits, conducted according to standard ICRC procedures, to monitor
detainees’ treatment and living conditions, including the individual follow-up of
security detainees, share the findings and recommendations with the authorities,
encouraging them to:
o take measures to ensure that inmates, in particular security detainees under
interrogation, are treated in accordance with international law and internationally
recognized standards, including respect for judicial guarantees
o ensure that foreign detainees, including Syrians, benefit from the principle of nonrefoulement
 through family-links services, enable security detainees, migrants and other foreigners
to contact relatives in Lebanon or abroad; assist foreigners in contacting their
embassies
 refer particularly vulnerable security detainees to specialized organizations offering
legal/judicial assistance
Assistance
 support the authorities’ efforts to enhance detainees’ material conditions, by providing
them with technical advice, including through round-tables/seminars, on prison
construction and measures to address overcrowding, as well as with hygiene items and
other essentials for distribution to particularly vulnerable security detainees and
detained foreigners
 to help the authorities ensure that detainees have access to quality health services:
o encourage coordination between the penitentiary and health authorities in
developing prison health services and promoting respect for medical ethics among
health staff, notably through an updated assessment of primary/mental health
services available in ISF prisons
o provide direct support in the form of technical advice, drugs and cleaning/hygiene
items to the health services of Roumieh central, Tripoli and Zahle prisons, sharing
ICRC observations and recommendations with the pertinent authorities
6
Wounded and sick
Wounded and sick people have access to emergency medical care through the EMS of various
organizations, notably that of the Lebanese Red Cross.
The country’s hospitals are unprepared to handle mass-casualty emergencies. The arrival of
hundreds of wounded Syrians further stretches the capacities of facilities in the Bekaa Valley
and northern Lebanon, which lack the resources to treat the evacuees. Syrian-run post-surgical
rehabilitation facilities struggle with insufficient stocks of consumables.
Palestinian refugees, ineligible to receive treatment under the Lebanese health care system,
rely on Palestine Red Crescent Society-run hospitals. In the camps, those wounded as a result
of violence often lack access to first aid.
Attacks on patients and medical staff and facilities, including ambulances, are reported during
clashes in urban areas.
Objective
 Wounded and sick people, including refugees, have timely and unhindered access to
adequate medical and surgical services during emergencies arising from armed conflict or
other situations of violence.
Plan of action and indicators
Assistance
Medical
 to promote respect for and protection of patients and medical staff/facilities/vehicles:
o document and report allegations of abuses to the authorities and weapon bearers
for investigation and action to prevent their recurrence
o on the basis of a comprehensive analysis of documented incidents, work on and
implement with the Lebanese Red Cross a plan of action to garner support for the
goals of the Health Care in Danger project
 to help weapon-wounded people access timely and appropriate first-level of care
during emergencies:
o support the Lebanese Red Cross EMS, particularly in providing first aid and
evacuating wounded Syrians to referral facilities, through technical and material
assistance and funding to cover running costs, ambulance maintenance, the
provision of blood bank services, and staff/volunteer recruitment and training,
particularly in first aid and the Safer Access approach
o organize first-aid training for armed groups, including in Palestinian camps, and,
with the Lebanese Red Cross, for volunteers in violence-prone areas
o through workshops, help the main EMS providers improve and coordinate the
management of mass casualties and human remains
 enable up to 2,400 wounded/critically injured Syrians to receive surgical care by
paying for their treatment in selected hospitals in the Bekaa Valley; monitor and
support patients in Syrian-run post-surgical rehabilitation facilities through the
provision of drugs and consumables
 in case of violence, help up to 600 weapon-wounded patients receive treatment by
providing medicines and other supplies to EMS providers and hospitals, including
those in Palestinian camps
 help local practitioners enhance their war-surgery skills through the training of
orthopaedic surgery students, Lebanese military surgeons, and medical staff of key
hospitals in violence-prone areas, and on-site coaching of surgeons in a hospital in
northern Lebanon where the ICRC rents 10 beds
7
 support the sustainability of the Palestinian Red Crescent-run hospitals by advocating
secondary health care referrals to them; be ready to provide advice on the
implementation of the Palestinian Red Crescent’s 2013–18 health strategy
Actors of influence
Local authorities and community/religious leaders exert influence in northern Lebanon and
the Bekaa Valley.
The LAF oversees State security and, with the UN Interim Force in Lebanon (UNIFIL),
implements a UN ceasefire resolution along the Israeli-Lebanese border. The military’s
national IHL office supports and monitors the integration of IHL into its decision-making
processes. The ISF is responsible for most prisons and law enforcement activities, with LAF
support.
The national IHL committee, established in 2010, has yet to begin its work. The media and
NGOs are active in Lebanon and, to some extent, the region. IHL is not yet offered as a
separate law course in universities.
Objective
 The authorities and all weapon bearers know and respect IHL and other fundamental rules
protecting people in armed conflict and other situations of violence, and incorporate these
into their decision-making processes. Community/religious leaders, academic circles, the
media, NGOs and other key civil society actors help foster awareness of humanitarian
issues and IHL among all those involved in these situations and the wider public, thus
achieving greater respect for human dignity. All actors understand the ICRC’s mandate
and support the work of the Movement.
Plan of action and indicators
Prevention
 to raise awareness of humanitarian principles and gain acceptance and support for
neutral, impartial and independent humanitarian action, including the goals of the
Health Care in Danger project:
o regularly engage community/religious leaders in the Bekaa Valley and northern
Lebanon in bilateral meetings/dissemination sessions, to secure their support for
the Movement’s response to the humanitarian needs of refugees from Syria
o encourage wider and accurate media reporting of humanitarian topics through
briefings, a humanitarian reporting award and IHL courses abroad for journalists
o pursue dialogue on humanitarian issues with political parties, think-tanks, NGOs
and the diplomatic community
o help the Lebanese Red Cross promote IHL, while developing communication
activities highlighting Movement activities in the region and beyond
o encourage health professionals, local and international NGOs, Islamic circles and
other key civil society actors to support and promote the goals of the Health Care
in Danger project through a workshop and reference materials
 to promote respect for IHL, other international norms, domestic law and humanitarian
principles:
o pursue dialogue with the ISF and LAF on law enforcement practices and engage
ISF officers in discussion regarding internationally recognized detention standards
and ICRC activities for detainees; keep high-ranking military/police officials
abreast of ICRC activities in Lebanon and beyond, including through presentations
8
o
o
o
o
at military/police training centres; conduct IHL dissemination sessions for newly
deployed UNIFIL officers
network with armed groups, including during first-aid training sessions, to
facilitate discussions on the fundamental rules of IHL protecting people not or no
longer participating in the fighting, and other relevant norms and principles
support the LAF and its national IHL office in further advancing IHL integration,
and help military/police and government officials deepen their understanding of
IHL by sponsoring their participation in courses in Lebanon and abroad; be ready
to support the national IHL committee
encourage the authorities to draft legislation protecting the rights of missing
persons and their families and the proper use of the Movement’s emblems
stimulate IHL interest in universities through workshops for lecturers/students;
encourage their participation in regional IHL courses/events and contribution to
related studies/publications
Red Cross and Red Crescent Movement
The Lebanese Red Cross is the ICRC’s main operational partner in Lebanon, focusing on
assisting wounded refugees from Syria, responding to emergencies in general, restoring
family links and promoting the Movement (see Civilians, Wounded and sick and Actors of
influence).
Objective
 The National Society is able to carry out effective activities to assist victims of armed
conflict or other situations of violence. The activities of all components of the Movement
are coordinated.
Plan of action and indicators
Cooperation
 in coordination with Movement partners, help the Lebanese Red Cross develop its
organizational and operational capacities, in particular through financial and technical
support to:
o better manage its EMS vehicle fleet and IT equipment/software, repair some
temporary stations and implement its five-year and fundraising strategies
o carry out a review of its statutes and send officials on courses/seminars abroad
 continue engaging in Movement coordination mechanisms, to ensure an efficient
response to humanitarian needs in the country
4. Request for funding under the Aide d'urgence budget line
The ICRC is hereby submitting a request for funding to the Belgian government under its
Aide d'Urgence budget line to allow the delegation in Lebanon to implement activities
planned in the framework of its Emergency Appeal for 2014.
The financial support from the Belgian government will represent a co-funding contribution
to the overall budget of the delegation (see below). The delegation will carry out the
9
programmes it defined on the basis of the assessed needs, in full respect for its integrated
approach towards the victims of the conflict situation.
The ICRC initially appealed for CHF 23,427,000 for Lebanon; with the budget extension for
THE SYRIAN ARMED CONFLICT AND THE WIDER REGION (1 May 2014), the revised
appeal amounts to CHF 38,139,000 (USD 43,124,000/EUR 31,277,000)
The Table below shows the figures of the Budget – per programme:
Lebanon – Emergency Appeal + Budget Extension 2014 – by programme
BUDGET IN kCHF
Protection
Assistance
Prevention
Cooperation with National Societies
General -
5,892,078.89
26,571,484.28
1,687,568.19
3,987,725.06
Total
38,138,856.42
Of which: Overheads 1,430
The total amount hereby requested is 2'000'000 EUR / 2’403’600 CHF1
Nature of costs
CHF
Operational costs
2'319'474
Administrative costs2
84'126
Total amount requested
2’403'600
Bank account details:
Account name:
COMITE INTERNATIONAL DE LA CROIX-ROUGE
Name and address of the bank:
UBS SA
P.O. BOX 2600
CH-1211 GENEVA 2
CODE SWIFT:
UBSWCHZH12A
Account number (EUR):
240-C0129986.5
IBAN CODE (EUR):
CH 25 0024 0240 C012 9986.5
1
2
EUR
1’930'000
70'000
2'000'000
Foreign currency rate December 2014: 1 EUR/ 1.2018 CHF
Personnel and administrative costs in support to the operations, as per annexed detailed breakdown.
10
Annexes
Lebanon - 2014 Budget
Operations
1 Staff related costs
2 Mission & Living allowances
3 Assistance to victims
4 Financial assistance
5 Means of Transport
6 Premises costs
7 IT & Telecommunication costs
8 Miscellaneous costs
Support
1 Staff related costs
2 Mission & Living allowances
5 Means of Transport
6 Premises costs
7 IT & Telecommunication costs
8 Miscellaneous costs
Overhead
9 Overhead
Grand Total
CHF Amount
30 143 706
10 213 927
234 142
5 587 482
6 863 120
570 503
4 535 856
112 186
2 026 489
5 667 429
3 546 109
61 226
243 770
1 403 152
203 528
209 644
2 327 721
2 327 721
38 138 856
ICRC operations in Lebanon
Financial situation as of 18.12.2014 (unaudited figures)
In Swiss Francs
Amount
Initial budgets
23 426 822
Budget Extension Appeals
14 712 035
Revised Budgets 2014
38 138 856
1. Estimated expenditure (November sitfin)
31 263 805
2. Adjusted balance brought forward from 2013
3. Total contribution
4.
1 384 122
25 958 738
Outstanding needs as against the estimated
expenditure (4 = 1 - 2 - 3)
11
3 920 944
Lebanon - 2014 revised budget
Program
1- Protection
Operations
1 190 495
251 177
93 708
1 535 380
LEBNDPLPROPPC0S
LEBNGENPROPPC0
LEBNSEPPROMIS0
LEBNSEPPRORFL0
613 669
292 676
1 667 328
360 416
302 051
174 458
564 342
115 857
59 522
30 364
145 058
30 958
975 242
497 498
2 376 728
507 231
4 124 584
1 407 885
359 610
5 892 079
LEBNDFGASSENG0
567 666
110 766
44 098
722 530
LEBNDFGASSGEN0
LEBNDPLASSECO0S
LEBNDPLASSENG0S
LEBNDPLASSMED0S
LEBNWSGASSMED0
444 100
5 395 885
3 985 337
9 013 277
2 363 433
60 866
792 860
519 725
1 507 673
188 163
32 822
402 268
292 829
683 862
165 854
537 788
6 591 014
4 797 891
11 204 812
2 717 450
2- Assistance Total
3- Prevention
1 621
733 26 571 484
21 769 699
3 180 052
LEBNADIPREACT0
359 197
339 498
45 415
744 110
LEBNADIPREACT1
LEBNAIIPREACT0
LEBNAIIPREACT1
110 650
344 643
55 571
77 226
265 187
32 600
12 212
39 639
5 731
200 088
649 468
93 902
870 061
714 511
102 997
1 687 568
LEBNRCGSNSEPR0
248 673
144 372
25 548
418 593
LEBNRCGSNSEPR0S
LEBNRCGSNSGEN0
LEBNRCGSNSGEN0S
2 883 916
150 283
96 490
65 598
120 135
34 875
191 718
17 577
8 539
3 141 232
287 996
139 904
3 379 363
364 980
243 382
3 987 725
3- Prevention Total
4- Cooperation
Overhead Total Budget
LEBNDFGPRODET0
1- Protection Total
2- Assistance
Support
4- Cooperation Total
Grand Total
30 143 706
12
5 667 429
2 327
721 38 138 856