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Lebanon

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Overview

Lebanon, a small upper-middle-income country with a democratic system, a service-led economy and a diverse society, submitted its Voluntary National Review (VNR) in 2018 after a period marked by repeated shocks since the late 1990s, including the assassination of Prime Minister Rafiq Hariri in 2005, the 2006 Israeli attacks and the protracted Syrian crisis. Since 2011, growth has weakened markedly: by 2016 GDP growth had fallen to about 1% (from an average of 8% previously), exports had declined by roughly one-third, public debt had increased by about USD 6 billion (2011–2016), and electricity spending for displaced people had risen by about USD 1 billion (2012–2016). Lebanon hosts around 1.5 million people displaced from Syria; by mid-2017 they comprised nearly a quarter of the population, with 90% living in 251 vulnerable localities. Following the election of a President and formation of a unity government in late 2016, stability improved and engagement with Agenda 2030 accelerated. The Government adopted the Lebanon Crisis Response Plan as Sustainable Development Goals (SDGs) -aligned framework, and this VNR provides a baseline from 2015 while identifying priorities for achieving the United Nations (UN) 2030 Agenda.

Conclusion

Lebanon’s 2018 VNR shows tangible progress in health, education and gender equality, and a growing national commitment to the 2030 Agenda through integrated planning, stakeholder participation and legislative reform, including the 2017 PPP Law and the passage of the first national budget in 12 years. Institutional arrangements—such as the national committee, thematic groupings and the SDG statistics task force—have enabled a whole-of-government approach, while strengthened partnerships with civil society and the private sector, including through GCNL, are expanding delivery on the ground. However, major constraints persist, notably fiscal pressures, increasing needs linked to hosting 1.5 million displaced Syrians, and gaps in data systems and institutional capacity. Going forward, Lebanon will prioritise resilient infrastructure, social protection, environmental stewardship, job creation and decentralisation, while mobilising concessional finance and private investment, enhancing data for decision-making, and sustaining inclusive partnerships to ensure that no one is left behind.

Recommendations

  1. Governance and integrity: Enforce anti-corruption measures, expand e-government, guarantee access to information, and merit-based recruitment.
  2. People-first priorities: Target poverty, youth unemployment and vulnerable groups with a comprehensive social-protection strategy.
  3. Education and skills: Upgrade public education and technical training to match labour-market needs.
  4. Green transition: Tackle waste and wastewater, protect ecosystems, and scale sustainable agriculture to conserve natural resources.
  5. Decentralisation: Empower municipalities to plan and deliver services aligned with regional priorities.
  6. Private-sector mobilisation: Incentivise investment into SDGs 1, 2, 6 and 14 through policy clarity and co-financing.
  7. CSO system reform: Build a national CSO registry; classify by specialism, geography and size; promote networks to avoid duplication; introduce accreditation.
  8. Capacity building: Train decision-makers (ministers, parliamentarians, mayors) on SDG integration.
  9. Data upgrades: Strengthen the Central Administration of Statistics; standardise indicators; increase survey frequency.
SDGs Progress Tracker
  • SDGs Completion % 47
  • SDGs On-Track % 0
  • SDGs Achieved % 0
Voluntary National Reports
Country Focal Point

H. E. Minister Nazem El-Khoury
Minister of Environment
Ministry of Environment
P.O. Box 11-2727
Beirut - Lebanon

Location

Ministry of Environment, Beirut, Lebanon

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Region
  • Lebanon
  • Middle East
  • MENA
No Poverty
Score: 2
Justification Poverty in Lebanon was estimated at around 27% of the population in 2011/2012, almost unchanged from 2004-2005, when extreme poverty stood at 10%. A labour force survey to measure living conditions is currently under way. Poverty is most acute among agricultural households in rural areas, and there is a strong link between informal employment and poverty, underscoring the need for a comprehensive and inclusive social protection system.
Challenges Coverage remains fragmented between public and private schemes, and informality continues to leave many workers reliant on ad hoc assistance from ministries, non-governmental organisations and charities. Although services provided by the Ministry of Public Health (MoPH) act as a key safety net for people without formal contracts, gaps persist in both adequacy and coordination across providers and programmes.
Progress/

Solution

 Public sector employees benefit from maternity leave, health cover, private education and end-of-service indemnities, while private sector employees are covered by the National Social Security Fund (NSSF) for health, maternity and a retirement lump sum. The elderly, non-public-sector retirees, people with disabilities, the unemployed and blue-collar self-employed workers receive medical coverage through the MoPH or social assistance from the Ministry of Social Affairs (MoSA). Universal subsidies on bread and electricity and value-added tax exemptions cover about 50% of low-income households’ consumption and support job creation. In 2011, MoSA launched the National Poverty Targeting Programme (NPTP) using a USD 5.70/day poverty line; it supports 43,000 families with hospital fee waivers (10–15% co-payment), education support and e-card food aid (since November 2014). Over five years, e-cards will scale from 10,000 households (57,000 people) to 43,000 (245,600), and the National Poverty Graduation Programme (NPYP) will expand from 675 to 15,000 households, with about 9,000 expected to graduate. Delivery is supported by 230 Social Development Centres (SDCs) nationwide.
Unsolved Challenges ·       The MoSA is preparing a participatory study to move towards a unified, formal social protection system; however, integrating programmes, securing sustainable financing, and shifting from broad subsidies to well-targeted cash and in-kind transfers remain unresolved.

 

Zero Hunger
Score: 2
Justification Lebanon does not face severe or chronic nutritional imbalances; however, 5.4% of the population was undernourished in 2015, almost unchanged from a decade earlier, and around 11% of households are vulnerable to food insecurity. Vulnerability is higher in rural areas, where most displaced Syrians have settled, and more food-insecure households are headed by women than men. These conditions justify continued action focused on affordability, rural livelihoods and support to female-headed households.
Challenges In 2011, agriculture accounted for only 4% of gross domestic product (GDP) and, in 2009, employed 6% of the labour force nationally, highlighting low productivity at the macro level. Yet agriculture remains critical in rural areas, employing up to 25% of workers and contributing 80% of rural GDP. Heavy reliance on imports exposes the country to global price volatility, while affordability constraints continue to limit access to adequate diets for poor households.
Progress/

Solution

 MoSA addresses hunger and household nutrition through programmes that provide a free weekly hot meal for the elderly and poor via charities, and food vouchers delivered through the National Poverty Targeting Programme (NPTP). Food availability is generally stable, supported by government social assistance, sector strategies and humanitarian programmes. To cushion households from international price shocks—given Lebanon imports 65–80% of its food, especially cereals and sugar—the government subsidises wheat and bread to protect access for the poorest.
Unsolved Challenges The Ministry of Agriculture (MoA) 2015–2019 Strategy—covering eight courses of action, 30 components and 104 area interventions—aims to raise agriculture’s GDP share from 4 to 6%, reduce the trade deficit, ensure food safety and promote sustainable resource use. Although initiatives such as IDAL’s Agri-Plus export-support programme, Central Bank of Lebanon subsidies for agricultural loans and microfinance (for enterprises with up to four workers), wheat and bread price controls by the Ministry of Economy and Trade, and tobacco farmer subsidies from the Ministry of Finance are in place, gaps persist in scaling productivity, closing the trade deficit and fully insulating poor households from price shocks.
Good Health
Score: 3
Justification Lebanon has steadily improved its health system and maintained generally favourable outcomes despite internal pressures and external shocks. The Ministry of Public Health (MoPH) has aligned national plans with the SDGs to control outbreaks, expand access and improve quality. Outcomes justify continued investment: maternal mortality fell from 14 per 100,000 (2015) to 8.7 per 100,000 (2017); neonatal mortality was 4.3 per 1,000 (2017); and more than 95% of births are attended by skilled personnel. Reproductive health services are widely available through 213 MoPH primary healthcare centres, and teenage pregnancy is not a significant concern.
Challenges Food- and water-borne diseases persist; although food safety legislation was introduced in 2015, enforcement across ministries remains weak. Financing and workforce imbalances also constrain performance, with shortages of nurses, paramedics and administrators alongside an emphasis on tertiary care and weak regulation of ambulatory services. Affordability pressures continue as households face variable co-payments, especially in the private system.
Progress/

Solution

 Communicable diseases are largely controlled. Malaria and other tropical diseases are not relevant, and tuberculosis (TB) is low with incidence 16 per 100,000, prevalence 20 per 100,000 and mortality 1 per 100,000; around 50% of recent TB cases are among non-nationals, and treatment completion is 90% for Lebanese versus 50% for non-Lebanese. HIV/AIDS reporting shows 108 new cases in 2016 (down from 113 in 2015), with an incidence of 2.47 per 100,000, attributed to higher awareness and reporting. Road deaths and injuries have declined since peaking in 2007 following sustained awareness campaigns.
Unsolved Challenges Lebanon’s plural financing model covers all citizens but remains fragmented, the National Social Security Fund (NSSF) insures about one-third of the population; public employees and security forces have parallel funds; private insurance is widespread; and MoPH covers primary care and hospitalisation for roughly half the population—yet integration and cost control are unresolved. While 36% of primary healthcare centres are internationally accredited and utilisation rose to nearly 160,000 users in 2017 (+88% since 2015), sustaining quality and equity is ongoing. The MoPH Strategy 2025 (launched 2017) commits to universal health coverage through governance reform, prevention, equitable access for the poor and vulnerable, and strengthened surveillance; financing reform, human-resource rebalancing and system integration remain the principal gaps.
Quality Education
Score: 2
Justification The Government of Lebanon is developing the Education 2030 SDG 4 strategy as a national roadmap for the period 2019–2030 to improve learning outcomes, skills and equity. Despite the pressures from the Syria crisis, progress since Agenda 2030 was adopted in 2015 justifies a shift from short-term humanitarian responses to long-term system reform so that every child, including those with special educational needs, can reach full potential. Lebanon already records a very high youth literacy rate of 99.2% and full gender parity, yet disparities persist in enrolment across levels of education.
Challenges The conflict has doubled public-school enrolment since 2011, straining infrastructure that already needed rehabilitation. Although the Education Sector Development Plan 2010–2015 set a reform agenda, the humanitarian response slowed implementation. Coordination gaps persist between schools and universities and between general and vocational tracks; the general curriculum requires updating; and compulsory education law still excludes pre-primary. Financing constraints and unequal resource use—especially in marginalised communities—continue to limit progress, while reliance on short-term aid weakens planning and coherence.
Progress/

Solution

 The Strategy—launched at the end of 2018—sets priorities on legal reform, financing and technical actions, and promotes long-term partnerships. The Ministry of Education and Higher Education (MEHE) is using SDG 4 to align investments and has moved to predictable multi-year funding to improve infrastructure, teaching and data systems, introduce a new interactive curriculum and strengthen examinations. Enrolment stands at about 80% in pre-primary, 90% in compulsory basic education (free in public schools) and 70% in secondary education. Inclusion measures include piloting inclusive education in 30 public schools and equipping 100 schools with resource rooms, alongside a child-protection policy developed with the Ministry of Social Affairs (MoSA), the Ministry of Justice and UNICEF. MEHE is also prioritising early-grades literacy and numeracy through the World Bank-funded Stepping Up Early Childhood Education and School Readiness (S2R2) programme.
Unsolved Challenges System integration and sustainable financing remain unresolved. Delivering SDG 4 by 2030 requires aligning curriculum, leadership, assessment, teacher preparation and management within a coherent national framework. Scaling reforms also depends on strengthening technical and vocational education and training, guided by the National Strategic Framework for TVET 2018–2022. While national institutions support quality—such as the National Council for Scientific Research in Lebanon (CNRS-L), which has awarded 272 baccalaureate scholarships since 2002, supported 45 researchers since 2011, and funded 600 doctoral students with an annual budget of USD 2 million—and the Office of the Minister of State for Administrative Reform (OMSAR) promotes lifelong learning in the public sector, consistent regulation, coordination and long-term funding are still to be secured.
Gender Equality
Score: 2
Justification Lebanon is party to multiple international treaties protecting human and women’s rights, including the Convention on the Elimination of All Forms of Discrimination against Women (CEDAW). In 2012, the Government endorsed the National Commission for Lebanese Women (NCLW) Strategy for Women’s Affairs 2011–2021, with 12 strategic objectives; its 2017–2019 action plan is being implemented and tracked through annual reports. Gender gaps persist despite strengths in education, as reflected by the World Economic Forum (WEF) Global Gender Gap Report (GGR) 2017, which ranked Lebanon 109th in education and health (scores 0.956 and 0.957 respectively).
Challenges Political and civic participation remains low: women are 5.4% of local government, 8% of senior legislators and officials, and in 2013 just over 4% of firms had female top managers. In the May 2018 parliamentary elections, women were 14.4% of candidates (up from 2% in 2009), accounted for 62.34% on candidate lists, yet only six entered Parliament. Economic empowerment is also constrained by uneven access to leadership and persistent social norms.
Progress/

Solution

 Education outcomes are strong: the gender parity index averaged 0.932 in primary, 1.00 in secondary and 1.00 in tertiary enrolment in 2017. Lebanon leads the Gender Gap Index (GGI) in participation ratios with 64.9% and 45.7% of females versus 64.75% and 39.5% of males in secondary and tertiary education respectively. Female literacy is 88.09% (aged 15+) and 99.34% (aged 15–24). Women’s labour-force participation reached 26.3% (2017). Representation has risen: women hold 27% of new diplomatic posts, 30% of the Electoral Management Body, 23% of national security roles and 17% of the Social and Economic Council; they comprise 47.5% of the justice sector (up from 15% in 1993) and are projected to reach 50.4% by November 2019. Legal reforms include abolishing Penal Code Articles 562 (on 4 August 2011) and 522 (in August 2017), issuing Law 293 (2014) on domestic violence, approving a draft law in 2017 to criminalise sexual harassment, and adopting Law 46/2017 enabling part-time work for married women in the public sector.
Unsolved Challenges Structural discrimination persists under the personal status system governed by religious courts (Article 9 of the Constitution). Nationality reform remains incomplete: although Decree 4186/2010 (31 May 2010) granted three-year residency to spouses and children of Lebanese women married to foreigners, women still cannot pass citizenship to them; the NCLW is revising its 2010 proposal. Pending reforms include eliminating discrimination in the National Social Security Fund (NSSF) and legislating paternity leave. Institutionally, the Office of the Minister of State for Women’s Affairs (OMSWA)—with the Office of the Minister of State for Administrative Reform (OMSAR)—is drafting the first National Action Plan (NAP) for United Nations Security Council Resolution 1325 (UNSCR 1325) and the first national strategy to combat violence against women, alongside a study on the economic cost of violence; full enactment, financing and enforcement remain outstanding.

 

Water & Sanitation
Score:2
Justification Lebanon has adequate natural water endowments but faces acute stress from over-consumption and pollution, compounded by an influx of around 1.5 million displaced Syrians. Although the national distribution network provides almost full coverage—about 50% rehabilitated by 2017—only 37% of residents have access to safe drinking water. Untreated municipal wastewater and some industrial and agricultural discharges contaminate rivers, valleys and coastal waters, while unsustainable abstraction further degrades sources.
Challenges Supply is intermittent—particularly in summer—forcing households to rely on private water trucking, illegal artesian wells and bottled water; poorer households often use unsafe sources, raising health risks. Sanitation remains weakest: coverage is about 80% in Beirut but below 50% in the Bekaa, and nationwide access to safe sanitation is no more than 20%. The refugee influx has raised water demand by 8–12% and wastewater generation by 8–14%, straining under-resourced utilities and treatment facilities.
Progress/

Solution

 Cabinet adopted the National Water Sector Strategy (NWSS) in 2012 to ensure continuous, sustainable water, irrigation and sanitation services through expanded treatment capacity, improved transmission and storage, and demand management (metering and volumetric charging). In April 2018, Parliament passed the Water Code, aligning with international water agreements and promoting integrated water resources management, with provisions for delegated private-sector management (pending implementing decrees). The Government is upgrading networks and advancing wastewater projects; under the Paris Agreement, municipal wastewater treatment targets are 51% (unconditional) and 70% (conditional) by 2030. The Capital Investment Plan presented at the CEDRE Conference (April 2018) prioritises completing and upgrading plants, rehabilitating networks and expanding surface-water supply; the Office of the Minister of State for Administrative Reform (OMSAR) funds purification and marine-protection projects.
Unsolved Challenges Implementation of the Water Code awaits decrees, leaving governance reforms incomplete. Financing and operations for wastewater systems remain fragile, delaying scale-up to meet 2030 targets. Monitoring is improving but needs consolidation: the National Council for Scientific Research–Lebanon (CNRS-L), via its National Center for Remote Sensing, has monitored the Litani Basin and Qaraoun Reservoir monthly for seven years and, in 2018, launched an SDG 6 consortium with 19 stakeholders from 14 institutes; translating evidence into sustained enforcement and pollution reduction is still pending.
Clean Energy
Score: 3
Justification Lebanon’s power system remains dominated by thermal generation, while demand persistently exceeds supply. Installed capacity is just over 2,000 megawatts against peak demand that can reach 3,000 megawatts or more, resulting in daily outages ranging from three hours in Beirut to up to 12 hours elsewhere. Households rely on diesel generators that are costly and polluting. Fiscal pressures are severe: transfers to the national utility, Électricité du Liban (EDL), have been nearly USD 2 billion annually since 2002, reflecting inefficiencies and universal energy subsidies that benefit all income groups, including the poorest. Emissions from electricity generation account for more than half of national greenhouse gas emissions.
Challenges Ageing plants, poor maintenance, a weak transmission network, high technical losses and governance gaps—fee collection and staffing shortages at EDL—continue to undermine reliability. The independent regulator envisaged by Law 462/2002 is still not operational, slowing market reform and private investment. Universal subsidies crowd out capital spending, while generator dependence exacerbates pollution and household costs.
Progress/

Solution

 Reform is anchored in Law 462/2002, which provides for sector unbundling and an independent regulator (pending establishment). In 2017, the Council of Ministers approved a new five-year electricity strategy—building on the 2010 plan—to close the supply gap, improve networks, raise efficiency and expand renewables. Renewable diversification gained pace with wind tenders in 2013 and solar tenders in 2017; three companies were licensed for wind in 2017, and more than 40 solar bids were received the same year. Cumulative renewable additions are projected at 1,680–1,970 megawatts by 2025. Efficiency efforts began under the National Energy Efficiency Action Plan (NEEAP) 2011–2015, updated in 2016, alongside a National Renewable Energy Action Plan (NREAP) 2016–2020 targeting 12% renewables by 2020. Under the Paris Agreement, targets for 2030 are 15% (unconditional) and 20% (conditional) renewables, and 3% (unconditional) and 10% (conditional) energy-efficiency gains. The Office of the Minister of State for Administrative Reform (OMSAR) also funds alternative-energy projects in homes and schools in the Bekaa.
Unsolved Challenges Offshore hydrocarbons offer potential relief but remain uncertain. Under the 2010 offshore petroleum resources law, the Lebanese Petroleum Administration was created; in 2017 Cabinet issued maritime border and licensing decrees, and a consortium won Blocks 4 and 9 in the Exclusive Economic Zone. The exploration phase—up to five years following plan approval—has yet to yield commercial certainty, and environmental assessments are ongoing. Aligning any future gas finds with power-sector reform, emissions reduction and commitments under the Paris Agreement and the SDGs  remains unresolved.
Decent Work
Score: 2
Justification Lebanon entered economic stagnation in 2010 and suffered repeated shocks that cut real growth to an average of 1.6 % during 2011–2017 (World Economic Forum, April 2018), down from over 8% in 2007–2010 (and 9.2% in the national accounts for that period). The economy’s heavy reliance on services makes it vulnerable: tourism and real estate and construction each account for 20% of Gross Domestic Product (GDP). The Syrian crisis and prolonged political paralysis eroded confidence, depressing tourism, exports, real estate and private investment—even after a new President was elected and a government formed in December 2016.
Challenges Growth remains weak; GDP per employed person has declined amid a shift towards low value-added services and low employment elasticity. Unemployment was 10% in 2012 and doubled after the Syrian crisis (World Bank), with higher joblessness among women and youth (double and triple, respectively) and average unemployment spells close to one year. Informality is extensive: informal waged workers are almost 20%, over 30% are self-employed in low value-added activities, and public administration absorbs 30 % of wage earners; together, formal and informal wage workers exceed 70% of the labour force. Firm structure is skewed towards very small units: 73% of establishments are micro-enterprises (fewer than 10 workers) and 93% are micro or small (fewer than 50). Despite credit schemes (Kafalat and central-bank subsidies), formalisation and scale-up are slow.
Progress/

Solution

 At CEDRE, the Government set out a four-pillar recovery plan: scale up foreign-financed infrastructure, restore fiscal and financial stability, deliver governance and sector reforms, and diversify the economy. Investment is projected to create 50,000 jobs per USD 1 billion. In March 2018, draft laws on private equity, secured lending, insolvency and mediation were submitted, alongside plans for out-of-court workouts and one-stop business registration; Parliament is also updating the Code of Commerce and e-transactions and data-protection laws. Decree August 2017 converted the Beirut Stock Exchange into a joint-stock company, with electronic trading for SMEs and start-ups under way, while sector plans embed SCP and exports follow the 2015 strategy. Fiscal repair restarted with the 2017 Budget (first in 12 years) and the 2018 Budget reduced the deficit, complemented by ILO and World Bank jobs programmes.
Unsolved Challenges Restoring investor confidence and accelerating diversification remain unresolved, pending full implementation of governance and capital-market reforms and the results of the McKinsey diagnostics on priority sectors. Employment recovery hinges on sustained public investment and crowding-in private capital beyond CEDRE commitments. Informality and gender/youth joblessness require deeper labour-market enforcement and skills upgrading. Fiscal consolidation must continue to lower deficits and debt while protecting capital spending. Key digital-economy laws and insolvency reforms still await enactment, and business-environment streamlining must be completed to translate legislation into faster investment and job creation.
Industry & Infrastructure
Score: 3
Justification Lebanon’s growth model relies on open trade and cross-border connectivity, but repeating shocks, tight public finances and the Syrian crisis widened the gap between infrastructure supply and demand. Land freight fell by 33% between 2011 and 2017 due to border closures with Syria, sharply cutting industrial exports to neighbouring markets. Even before the crisis, post-war underinvestment had left deficits: public investment dropped to about three % of Gross Domestic Product (GDP) during 2001–2005 and 2% during 2006–2010; one-quarter of households are not connected to the water network, one-third are not connected to the wastewater network, and electricity supply from Light-emitting diode (LED) meets only about two-thirds of demand.
Challenges Infrastructure pressure intensified during 2011–2017 as capital spending fell to 1.4% in 2016–2017 and private investment slid from almost 30% (2007–2010) to just over 20% (2011–2015). Displacement added demand equivalent to ~480 megawatts (MW)—nearly one-fifth of installed power capacity—and raised traffic by ~15% nationwide. Industry remains import-heavy: in 2017, output was USD 13.2 billion against USD 19.58 billion in imports; exports were USD 2.474 billion (18.74% of output), while domestic demand reached USD 30.31 billion. Environmental pressures persist from on-site fuel combustion, wastewater and solid waste, despite compliance incentives.
Progress/

Solution

 Since 2011, trade shifted to sea and air: freight at Beirut Port increased, and airport traffic rose by 46% for arrivals and 48% for departures. To offset border closures, a maritime export bridge (2016–2018) subsidised sea–land costs, sustaining exports to the Gulf, Iraq and Jordan. Industry policy (2016–2025) prioritised exports, competitiveness and green, knowledge-based growth, while a USD 17.25 billion capital plan (2018–2025) expanded infrastructure with SDG screening. Innovation and compliance were backed by subsidised finance and pollution-abatement schemes, alongside nationwide fibre and 3G/4.5G roll-out and telecom reform.
Unsolved Challenges Delivering the USD 17.25 billion CIP requires completing project appraisals and environmental and social impact assessments and securing financing amid fiscal constraints. Power, water and wastewater backlogs still constrain competitiveness, and the full benefits of re-routing trade hinge on sustained port, airport and logistics upgrades. Industrial upgrading depends on faster export growth, deeper environmental compliance and uptake of new “product-space” opportunities (e.g., electrical machinery and chemicals). Telecom liberalisation awaits amendments to Law 431, appointment of a regulator and the Board of Liban Telecom, while USD 250 million in proposed information-and-communication-technology projects (including a national data centre and a third submarine cable to Europe) must move to execution to position Lebanon as a tier-2 regional internet hub.
Inequality
Score: 2
Justification Despite years of social, economic and political reform, inequality in Lebanon remains pronounced. The latest official household budget survey (2007) shows the bottom 20% accounting for just 7% of consumption, while the top 20% accounts for over 43%; the Gini coefficient was 0.37. A 2017 study by the Ministry of Finance based on private-sector tax declarations found that the top 2% earn nearly as much as the bottom 60%, ranking Lebanon 129th of 141 countries for income equality. The World Bank inequality-adjusted Human Development Index (HDI) 2015 indicates a 21% loss due mainly to income and education disparities, underscoring the urgency of addressing inequalities under SDG 10.
Challenges Monitoring progress against Target 10.1 is constrained by outdated official data (last household survey in 2007). Inequality of opportunity persists due to perceived and real quality gaps between public and private services. High informality leaves many poor workers in insecure conditions, while geographic disparities restrict access to services. On the fiscal side, high deficits and debt limit the redistributive impact of spending despite tax reforms.
Progress/

Solution

 Social protection is expanding through Ministry of Public Health coverage for the uninsured, an enlarged primary-healthcare network offering low-cost consultations and medicines, strengthened Social Development Centres (SDCs), and sector-wide upgrades in public education. Fiscal policy includes a progressive personal income tax with deductions and credits (basic, family and child), while property tax exempts up to USD 80,000 of value and inheritance tax exempts up to USD 42,000 for direct relatives. The 2017 budget introduced more progressive measures: raising the tax on interest income from 5% to 7%, corporate income tax to 17%, and adding a 15% tax on real-estate transactions. On labour markets, the Ministry of Labour, with the International Labour Organisation (ILO), began drafting a comprehensive strategy for 2017–2020 to improve inspection, job quality, youth employment and social protection, alongside a government-set minimum wage updated in 2017.
Unsolved Challenges An integrated national approach is still lacking to connect social protection, labour policy and fiscal measures into a coherent equity framework. Reducing informality, equalising service quality and closing regional access gaps remain unresolved. Politically, while the 2017 electoral law introduced proportional representation and was applied in 2018—drawing over 1,000 candidates, including 111 women—translating political reform into material reductions in inequality is an ongoing challenge.
Sustainable Cities
Score: 2
Justification Rapid urban expansion in Lebanon has increased pressure on housing, transport, energy and environmental services, with about one in five displaced Syrians living in urban areas, worsening density and service demand. The National Physical Master Plan for the Lebanese Territory (NPMPLT) provides the overarching framework for balanced territorial development, yet urban governance remains fragmented among municipalities, the Directorate General of Urbanism, the Higher Council for Urban Planning, the Council for Development and Reconstruction (CDR) and line ministries, requiring stronger coordination to deliver social, environmental and economic outcomes.
Challenges Housing for low- and middle-income households remains constrained despite subsidised loans from the Public Corporation for Housing and the Housing Bank; inefficient building insulation drives high energy costs. Transport pollution is acute due to a near-absence of public transport and low occupancy (1.2 passengers per car), while green spaces continue to shrink; Beirut’s Liaisons Douces soft-mobility and greening project is still at study stage. Air quality is below international standards, and official post-installation results from monitoring stations have not yet been published. Disaster vulnerability persists despite new institutions, and urban plans still struggle to fully integrate climate resilience with economic and social policy.
Progress/

Solution

 To tackle fragmentation, a Ministry of State for Planning was created in 2016, leading a national urban policy and the Habitat III report with UN-Habitat. Transport was prioritised at CEDRE, with about USD 5.6 billion in projects; CDR delivered roads, tunnels and bridges, while World Bank funding launched the Greater Beirut Public Transport Project under the new PPP law and a BRT scheme entered feasibility. By end-2017, a national air-quality strategy to 2030 (Law 78/2008) was issued, with priority actions due by 2020. Disaster risk management was strengthened through a central unit and operations room, a Beirut resilience project (May 2015), and CNRS-L hazard mapping and 72-hour wildfire forecasts via SuNaR.
Unsolved Challenges Key gaps persist, including adopting and enforcing a national urban policy aligned with the NPMPLT, delivering the 2030 air-quality strategy (with results published) and completing the 2020 priority actions, rolling out mass transit beyond pilots, and implementing Beirut’s green-space and soft-mobility plans. Long-term finance for resilient infrastructure and energy-efficient housing remains unresolved. While five UNESCO World Heritage Sites have been protected under the World Bank project, coastal land-use planning continues. Tourism (about 9% of GDP and 123,500 jobs in 2016) needs scaled, sustainable eco- and religious tourism via the Cultural Religious Tourism initiative, and volunteerism—expanded since 2011—needs stable funding despite generating 4.2 million student hours in 2016–2017.
Responsible Consumption
Score: 2
Justification Lebanon is party to multiple multilateral environmental treaties, protocols and conventions, and has embedded sustainability principles in various national and sectoral policies; however, it still lacks a single national sustainable development strategy and vision to link these efforts across sectors and across all production and consumption patterns. While sustainability is referenced in laws and strategies, the absence of an overarching framework limits coherence, prioritisation, and accountability for Sustainable Consumption and Production (SCP) nationwide.
Challenges Solid waste management remains a major policy challenge. Although Lebanon has a healthcare waste decree, only 60% of healthcare waste is treated; the remainder is mixed with municipal waste, as is industrial and demolition waste. The Syria crisis has intensified pressures, with 15.7% additional solid waste attributed to displaced populations, leading to increased open dumping and burning and higher land and water contamination. Several municipal solid waste strategies drafted over two decades were not fully implemented, mainly due to social acceptance and political factors. Recycling reached only 15% in 2017, despite growing public, private-sector and civil-society efforts.
Progress/

Solution

 Law 444/2002 and its decrees underpin sustainable consumption and production through cleaner production, biodiversity protection, pollution control, landfill standards and recycling. In 2015, the Ministries of Environment and Industry adopted the SCP Action Plan for the industrial sector, promoting best available techniques, policy integration and life-cycle approaches. Sustainability is embedded in Lebanon Industry 2025, the 2016–2020 Executive Strategy and the 2017–2018 plans, notably Objective 5 on green industry. Launched in 2014 with support from Italy, the World Bank, the Central Bank and UNDP, LEPAP offers free technical assistance and soft loans to help firms meet environmental standards.
Unsolved Challenges In January 2018, the Council of Ministers approved an integrated solid waste policy with recovery targets of 25% material and 35% energy by 2024, and 35% material and 50% energy by 2035, alongside dumps rehabilitation and decentralisation. However, the comprehensive national strategy is still being compiled, and the draft national solid waste management law submitted to Parliament in 2012 remains unapproved. In newer sectors, such as offshore oil and gas, the Lebanese Petroleum Administration has committed to continuous environmental and social assessment, but frameworks are still maturing. The Sustainable Public Procurement Action Plan (2011) also awaits enabling legal amendments. Overall, legislated targets exist, but full implementation and cross-sector integration under a national sustainable development vision remain unresolved.
Climate Action
Score:2
Justification Over the past two decades, Lebanon has strengthened its climate-change response through active engagement in the United Nations Framework Convention on Climate Change (UNFCCC) and by issuing its Intended Nationally Determined Contribution (NDC) in 2015, which sets the country’s overall climate strategy. Although total emissions are low by international comparison, greenhouse-gas (GHG) emissions doubled between 1994 and 2013 and rose by 3.7% per year, largely driven by transport and energy, which together account for around 80% of emissions. Climate change threatens agriculture, electricity supply and water resources, with agriculture identified as the most vulnerable sector.
Challenges Emissions continue to rise, especially from fossil-fuel use in transport and power generation. Adaptation pressures are increasing as agriculture faces declining productivity and electricity demand grows due to higher summer cooling needs. Institutional capacity and coordination among line ministries remain uneven, limiting effective integration of climate action into national development planning. Financing and technical skills gaps further constrain implementation of cross-sector measures.
Progress/

Solution

 Lebanon signed the Paris Agreement in April 2016 (the draft law was forwarded to Parliament in August 2016). Climate action has been mainstreamed into sector strategies, including the National Water Sector Strategy (2012), the National Biodiversity Strategy and Action Plan (2018), national energy strategies, and forestry strategies. The Ministry of Agriculture incorporated climate action into its 2015–2019 strategy, and in 2017 launched a forestry programme to plant 40 million trees. Two Nationally Appropriate Mitigation Actions (NAMAs) for transport and municipal solid waste were approved in 2017. Fiscal reforms abolished 100% of taxes on electric vehicles and 80% on hybrid vehicles, and Law 79/2018 (2018 National Budget Law), Article 55 introduced customs and registration reductions for these vehicles. As part of its Paris commitments, Lebanon set 2030 targets of 36% (unconditional) and 48% (conditional) for public-transport modal share, and 20% (conditional) for fuel-efficient vehicles. A low-emission development strategy and a National Adaptation Plan are also under preparation.
Unsolved Challenges The Paris Agreement has not yet been ratified, delaying the legal decrees needed to operationalise NDC implementation, transparency arrangements and the long-term low-emission strategy. Lebanon still lacks a dedicated national climate law, and key policy instruments are awaiting full execution. Stronger political leadership, clearer governance arrangements and sustained resourcing are required to translate commitments into measurable emissions reduction and resilience outcomes.

 

Life Below Water
Score 3
Justification Lebanon’s coastline stretches for about 230 km along the Mediterranean Sea and is internationally recognised for its biodiversity. The coast hosts the country’s largest cities, where around three-quarters of the population live, making marine and coastal ecosystems vital for livelihoods, tourism, fisheries and trade. Lebanon has committed to international protection through the Barcelona Convention (1976; amended in 1995), the London Convention (1954, 1973 and 1994), the Jamaica Convention / UN Convention on the Law of the Sea (1982), the 2002 Prevention and Emergency Protocol, and the 2008 Protocol on Integrated Coastal Zone Management in the Mediterranean.
Challenges Only around 0.2% of marine areas are protected. Heavy population pressure, unplanned urbanisation, beach privatisation, sand extraction and land reclamation persist. Pollution from untreated industrial waste, wastewater and solid waste continues, and two major sanitary landfills serving Beirut and Mount Lebanon are located on the coast. The most severe impact remains the 2006 oil spill following the Israeli attacks, recognised by 12 United Nations General Assembly resolutions with compensation of USD 856.4 million in 2014.
Progress/

Solution

 A draft national law on Integrated Coastal Zone Management has been prepared and, alongside Environment Protection Law 444/2002, is intended to strengthen coastal protection. In parallel, the Council for Development and Reconstruction is preparing a coastal master plan in line with the National Physical Master Plan of the Lebanese Territory. The Cabinet endorsed the National Biodiversity Action Plan in 2018 (prepared in 2016), which includes marine and coastal protection. Lebanon has two coastal protected areas—the Palm Islands Nature Reserve and the Tyre Coast Nature Reserve—and a Marine Protected Areas Strategy (2012) to build a network of nine marine/coastal sites, five estuaries, and one to four deep-sea sites, supported by planning, co-management and community awareness.
Unsolved Challenges The Integrated Coastal Zone Management law has not yet been enacted, and enforcement of existing safeguards remains weak. Marine protection coverage is far below ecological needs, and coastal development continues to outpace regulation. Long-term remediation of the 2006 oil damage is incomplete, and sustained financing, monitoring and cross-sector coordination are still required to secure public access to beaches and restore marine ecosystems.

 

Life on Land
Score :3
Justification Lebanon is a Mediterranean biodiversity “hotspot”, hosting 0.8% of the world’s species and 12% of endemic terrestrial and marine plant species on only 0.007% of the world’s land area. This exceptional richness underpins livelihoods, food security and tourism. The country has established a large conservation estate: 15 nature reserves, 3 biosphere reserves, 16 protected forests, 16 protected natural sites or landscapes, 4 Ramsar sites, 5 World Heritage sites, and 15 Important Bird Areas. Forests cover about 13% of the country and other wooded lands another 10%.
Challenges Forests within legally protected areas represent no more than 2.6% of the total forest cover, and reforestation remains costly, making prevention critical. Enforcement of land-use planning is weak despite Decree-Law No. 69 of 1983 and the National Physical Master Plan of the Lebanese Territory (2005; approved by Decree 2366 on 20 June 2009). Detailed urban plans cover only 32.2% of the territory (up from 16.2% in 2004). The Syrian crisis and informal settlements have intensified unplanned construction and ecosystem stress.
Progress/

Solution

 Lebanon’s Second National Biodiversity Strategy and Action Plan (2016–2030), endorsed by Cabinet in April 2018, commits to expanding nature reserves to 5% of the territory by 2030 and to bringing 20% of terrestrial and marine ecosystems under protection. Reforestation has accelerated to 0.8% per year, exceeding the estimated deforestation rate of 0.4%. National programmes include the National Action Plan to Combat Desertification, the National Afforestation and Reforestation Programme and the 40 Million Trees Programme. Lebanon has also joined key treaties, including the Convention on Biological Diversity (Rio de Janeiro, 1992), the UN Convention to Combat Desertification (Paris, 1994), the Ramsar Convention (1999) and the Nagoya Protocol (ratified April 2017).
Unsolved Challenges A Protected Areas Framework Law, a law to regulate access to biological and genetic resources under the Nagoya Protocol, a Forest Fires Law and a Bio-safety decree are still in draft and unenacted. Institutional capacity and compliance with the master plan remain limited. While the National Council for Scientific Research of Lebanon (CNRS-L) funded 245 projects in 2017/2018 worth over USD 6 million (half for natural resources, water, marine and biodiversity, and renewable energy), long-term financing and monitoring are insufficient. Planned investments aligned with the CEDRE vision must still translate into universal water, wastewater and solid-waste services to reverse environmental degradation.

 

Peace & Justice
Score:2
Justification The Government of Lebanon is committed to the SDGs and the Preventing Violent Extremism (PVE) agenda because terrorist threats, radicalisation of vulnerable youth and regional instability directly endanger peace, development, human rights and national sovereignty. Since 1948 Lebanon has hosted around 500,000 Palestinian refugees, and over the past seven years has also faced large displacement from the Syrian crisis, placing sustained pressure on security, services and social cohesion and increasing the risks associated with violent extremism and cross-border insecurity.
Challenges Violent extremist groups exploit social media, unresolved conflicts and socioeconomic grievances, while displacement continues to strain infrastructure and labour markets. Public investment fell to about 3% of GDP during 2001–2005 and 2% during 2006–2010, then further during 2011–2017, constraining service delivery and job creation. Human rights enforcement is uneven, pre-trial detention remains a concern, and industrial pollution and environmental pressures persist alongside the security burden. Institutional coordination across reforms, and judicial modernisation in particular, requires sustained political backing and funding.
Progress/

Solution

 An inter-ministerial team developed a Cabinet-endorsed PVE Strategy, with implementation under way, while an EU-supported counter-terrorism strategy is being drafted. The Internal Security Forces delivered their 2018–2022 plan and the Lebanese Armed Forces stepped up border security; international support was reaffirmed at the Rome conference in March 2018. Governance reforms included the 2017 proportional electoral law, the 2017 PPP law, revival of the 71-member Economic and Social Council, adoption of the first national budget in 12 years in 2017, and launch of the anti-corruption strategy by OMSAR in April 2018. Human rights advances (2016–2018) included Law 62 (27 October 2016), repeal of Criminal Law Article 522 on 16 August 2017, and a birth-registration mechanism for displaced Syrians approved on 8 February 2018, alongside approval of a draft EITI-aligned law by Parliament’s Energy Committee.
Unsolved Challenges Full implementation of the PVE Strategy and the national counter-terrorism framework is pending, including Lebanon’s adhesion to the International Convention for the Suppression of the Financing of Terrorism (1999). The National Anti-Corruption Commission is yet to be established, the public procurement law awaits enactment, and the petroleum transparency draft law and sovereign wealth fund legislation remain under debate. The Public-Private Partnership framework must be operationalised at sector level, and the telecom, judiciary and public administration reforms under Law No. 46 of 21 August 2017 require completion. Finally, durable solutions for displacement—including conditions for safe return—remain unresolved and essential to stability and sustainable development.
Partnerships
Score:3
Justification Lebanon is determined to mobilise financing for Agenda 2030 through partnerships with the international community, as reaffirmed at the CEDRE conference in April 2018, despite a fiscal deficit equivalent to 9% of Gross Domestic Product (GDP). Pressures are structural: by 2017 public debt had risen to nearly 150% of GDP; servicing it absorbs more than one-third of expenditure and nearly half of total revenue, while personnel costs take about another one-third, even though almost 70%of formal civil service posts are vacant. Public investment and social protection have been compressed: capital expenditure is only 6% of total public spending, and social security and health outlays fell from 4.5% of GDP in 1990 to about 2% in 2015.
Challenges Fiscal space remains tight: revenue is under 20% of GDP, with about one-third from direct taxes and the rest from indirect taxes, while transfers to the electricity utility cost USD1–2 billion annually plus an estimated USD1 billion in 2012–2016 due to added demand from displaced Syrians. The trade deficit exceeds 22% of GDP; export cover fell to 16% in 2016 (from over 20% in the late 2000s). External finance has weakened: foreign direct investment (FDI) averaged 3.6% of GDP in 2011–2016 versus 9.5% in 2000–2010, remittances declined from 25% of GDP a decade ago to 16% in 2016, and pledged aid has often under-delivered (only 62% of USD2 billion after 2006 and 56% of USD7.6 billion from Paris III; the 2015–2016 Lebanon Crisis Response Plan received under 50% of the USD1 billion per year requested).
Progress/

Solution

 The Government closed 2017 with a primary surplus and aims to reverse trends through concessional borrowing, deficit reduction and structural reforms. In April 2018, donors pledged more than USD11 billion in grants and highly concessional finance at CEDRE to fund the first phase of the Capital Investment Programme (CIP), complemented by mobilising private finance via Public–Private Partnerships (PPPs) and use of the World Bank’s Global Concessional Financing Facility. Lebanon has pursued trade liberalisation since 2001, signing free trade agreements (FTAs) including the Greater Arab Free Trade Area, the European Union (EU), the European Free Trade Association and the Gulf Cooperation Council, while advancing accession to the World Trade Organization and joining the Agadir Agreement. Data systems are being strengthened through the Central Administration of Statistics (CAS) and participation in the Statistical Data and Metadata Exchange (SDMX) initiative.
Unsolved Challenges Long-term debt reduction and energy-sector reform remain unresolved, including permanently eliminating the electricity utility’s deficit. Export diversification is constrained by non-tariff barriers and disrupted routes, while private capital continues to concentrate in real estate with limited impact on the SDGs. Sustained delivery of the CIP depends on continued concessional funding and bankable PPP pipelines. Finally, statistical gaps persist—despite the CAS census of Palestinian refugees and an ongoing labour force survey—requiring stronger inter-agency coordination to ensure regular, harmonised SDG reporting.

 

SDGs World Progress: Moderately Off-Track
  • SDG3
  • SDG7
  • SDG9
  • SDG14
  • SDG15
  • SDG17
SDGs World Progress: Off-Track
  • SDG1
  • SDG2
  • SDG4
  • SDG5
  • SDG6
  • SDG8
  • SDG10
  • SDG11
  • SDG12
  • SDG13
  • SDG16
Country Challenges
  1. Fiscal pressure and limited public spending power: High deficits and debt restrict the Government’s ability to finance SDG programmes and scale social spending, despite clear priorities such as poverty reduction, jobs and infrastructure.
  2. Governance gaps for Civil Society Organisations (CSOs): With over 8,000 registered CSOs, the absence of a unified database, incorrect contacts, outdated records and no classification system hinder coordination and accountability.
  3. Regional disparities: Needs differ sharply by region (e.g., poverty in North and Akkar; waste and wastewater in Beirut and Mount Lebanon; Litani River pollution in Bekaa; youth employment in the South), complicating national roll-out.
  4. Impact of the Syrian crisis: Pressure on services, jobs and resources continues to affect development outcomes and deepen inequalities.
  5. Data weaknesses: Limited frequency and quality of statistics make SDG reporting and evidence-based planning difficult.
  6. Low private-sector coverage of priority SDGs: Businesses focus on SDGs 5, 3, 13 and 16, while SDGs 1, 2, 6 and 14 remain largely unattended.
Country Lessons Learned
  1. Anchor SDGs locally: Tailor national priorities to regional needs (e.g., Litani River pollution in Bekaa; decentralisation in North and Akkar) to make SDGs actionable.
  2. Institutionalise civil-society voice: Formal mechanisms for CSO participation improve relevance and delivery; consultations surface workable solutions and blind spots.
  3. Public–private alignment matters: Clear policy signals are essential to steer business investment towards under-served SDGs.
  4. Data is foundational: Invest early in statistical systems and harmonisation (e.g., national surveys, SDG-ready indicators) to track impact credibly.
  5. Use networks to scale impact: The Global Compact model shows how business networks accelerate learning, partnerships and reporting.
Country Contribution
  1. 26 July 2000 – Launch of the UN Global Compact at UN Headquarters, New York, establishing the world’s largest corporate sustainability initiative.
  2. September 2015 – Establishment of the Global Compact Network Lebanon (GCNL), hosted at AUB, to localise the UN Global Compact in Lebanon.
  3. 2017 – Adoption of the Public–Private Partnership (PPP) Law, enabling transparent collaboration with the private sector on development projects.
  4. May 2018 – Launch of PPP processes for three major projects in transport and telecommunications under the Capital Investment Plan (CIP).
  5. 2017 – First national budget passed in 12 years, restoring fiscal planning and oversight.
  6. April 2018 – National Anti-Corruption Strategy launched by OMSAR, strengthening integrity systems across public institutions.
  7. 8 February 2018 – Approval of a birth-registration mechanism for displaced Syrians, improving legal identity and access to services.
  8. March 2018 – Rome International Conference renewed international support for Lebanon’s security institutions.
  9. 2017 – Establishment of Lebanon’s first SDG Council, mobilising business leaders as national ambassadors for the SDGs.
  10. 2017 – Private-sector SDG focus identified: SDG 5, 3, 13 and 16 most addressed; 13,000+ global participants (9,000 businesses, 4,000 non-business) engaged via the UN Global Compact.
  11. 2017–2018 – Launch of targeted initiatives: ProAbled (jobs for persons with disabilities), anti-corruption training with UNDP, Environmate environmental accelerator, and Sustainable Minds schools’ competition.
  12. 2018 – Introduction of the AUB Pledge for the SDGs, promoting action-oriented research and SDG infrastructure.
  13. 2011–2017 – Volunteerism scaled through reforms, generating 2 million student-volunteer hours.
  14. 2016 – Tourism reached 9% of GDP and 123,500 jobs, with efforts underway to expand eco- and religious tourism.
  15. From 2011 – National Poverty Targeting Programme (NPTP) supports 43,000 families using a USD 5.70/day poverty line; includes hospital co-payment waivers, schooling support and e-cards (introduced November 2014).
  16. Elections in 2018 – A new Parliament elected, signalling renewed political momentum for reforms and SDG implementation.

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