As part of its advocacy efforts towards building a people-centered and sustainable recovery from the Beirut port explosion and its endeavors to promote inclusive and equitable social justice, as well as foster trust between individuals, entities, and the Lebanese government, the Lebanese Center for Policy Studies (LCPS) partnered with Transparency International (TI) and its local chapter, Transparency International Lebanon – No Corruption, to issue “The Reform Monitor.” The topics covered by the monitor are linked to the areas of reform, recovery, and reconstruction (3RF). The monitor falls within the Building Integrity and National Accountability in Lebanon (BINA’) project, which is funded by the European Union. The views expressed in the monitor do not necessarily reflect those of the donor.

What’s the issue at hand?  

Lebanon continues to suffer the devastating effects of the ongoing conflict on its southern border, with systematic destruction having taken place in different parts of the country, including the Bekaa, south Lebanon, and Beirut’s southern suburbs, generating significant amounts of rubble and debris. According to the UN Office for the Coordination of Humanitarian Affairs (OCHA)’s Flash Appeal, the ongoing conflict has severely destroyed, damaged, and strained existing infrastructure (OCHA, October 2024).

The World Bank’s Interim Damage and Loss Assessment (DaLA) Report estimates that 99,209 housing units have been damaged by the conflict, with 18 percent completely destroyed and 82 percent partially damaged (World Bank, November 2024). Preliminary estimates of construction demolition waste (CDW) in November 2024 suggest a significant quantity ranging between 50 to 100 million tons (Kallab and Kaskas, 2024). In addition to the current tons of debris generated by the conflict, recovery and future reconstruction efforts are expected to generate more demolition and construction waste.

Construction Demolition Waste

As a general definition, construction demolition waste refers to the waste which is derived from construction and demolition activities, such as the construction or demolition of buildings and infrastructure, road planning, and maintenance. Lebanon’s demolition waste does not only derive from construction activities, but also from debris and rubble generated from emergencies such as wars and conflicts (emergency demolition waste).

Inmost cases, the main constituents of debris consist of concrete, bricks, rocks/stones, wood, asphalt, soils from excavations, plaster, metals, white goods such as kitchen appliances, electronic waste, furnishings, paper, cardboard, plastic, and glass (UNDP Debris Management Guidelines, 2010). Rubble generated from wars and conflicts particularly have an extra hazardous component consisting of the presence of unexploded ordinance, human remains, white phosphorous, e-waste, and heavy metals from solar batteries and panels.

CDW constitutes the largest component of disaster waste (Luther, 2017). According to the UNDP, the type of building (whether it is residential/commercial/industrial) determines the amount of demolition waste generated by its complete destruction (UNDP Demolition Waste Assessment, 2020). Debris arising from disasters or conflicts typically stems from debris clean up, demolition of damaged buildings, repair of damaged buildings, demolition of targeted infrastructure, rehabilitation of damaged roads, and reconstruction waste generated from the construction and repair of buildings (UNDP Debris Management Guidelines, 2010).   

While a portion of the CDW generated is reused in backfilling, port expansion, and sea reclamation, the majority of CDW is illegally dumped in valleys or empty quarries. Individual constituents such as steel, copper, and aluminum, among other metals, are salvaged for reuse or recycling. In developing countries, CDW typically ends up in uncontrolled landfills, its handling constituting a major challenge. These countries struggle to effectively develop and implement demolition waste strategies (Tamraz et al., 2011). Government officials have recently suggested disposing of the war-generated rubble along the coast (Al Akhbar, 2024).

Past Experiences

Lebanon has faced recurring challenges with rubble and debris accumulation following emergencies or disasters. The August 2020 Port of Beirut blast generated an estimated amount of 800,000 to 1,000,000 tons of CDW from the demolition of damaged buildings in Beirut (excluding port clearance). Following the explosion, the Municipality of Beirut assigned a site for temporary storage of demolition waste in Karantina where most of the CDW and other disaster waste was being transferred (UNDP Demolition Waste Assessment, 2020). According to Al Tawil et al. (2023), most of the asbestos-contaminated waste was randomly dumped across the country.

Even prior to the blast, there was a lack of a clear national strategy concerning CDW. In the aftermath of the July 2006 war, a significant amount of emergency demolition waste was generated, approximated at 3 million m3 of rubble. Most of this waste was dumped at temporary existing and reclaimed onshore and offshore sites (Tamraz et al., 2011). The 2007-armed conflict in the Nahr-El-Bared refugee camp generated 0.6 million m3 of rubble. According to Basbous (2021), the rubble generated from that conflict was used in expanding the port of Tripoli. Also, rubble generated by the 1975 Civil War was used in land reclamation projects along coastal areas which were strategically located. The AinMraisseh on Beirut’s seafront is an example of the use of demolition debris, produced during the Civil War, to reclaim land (Basbous, 2021).  

Handling of Construction Demolition Waste

Although past experiences with debris management point to the environmentally harmful practices of onshore and offshore dumping of rubble, the life cycle of debris need not end in this manner. Regarding the handling of construction demolition waste, it is important to note that the options available for debris management are determined by the initial handling of the debris. Pre-sorting the debris is a precondition that enables reuse and recycling. As such, mixing the debris with general waste considerably reduces the opportunities to recycle (UNDP Demolition Waste Assessment, 2020).

This point is particularly important when taking into consideration the presence of hazardous waste streams contained in the rubble. Hazardous materials commonly found in debris include asbestos, which is a mineral fiber that occurs in rock and soil commonly used in building construction materials for insulation and as a fire retardant. The release of asbestos fibers in the air during demolition work increases the risk of developing lung disease due to exposure and even cancer (EPA, 2024).

Other hazardous materials include (1) heavy metals which are used in a building’s structural components, (2) hazardous materials contained in solar batteries and panels, paints, adhesives, and other chemicals, clinical, and healthcare wastes (from damaged hospitals and clinics), and (3) contaminated soil from an area either near or under the damaged structure. These hazardous materials must be removed from the debris before processing and cleaning, which is a costly and labor-intensive task, and a high degree of contamination limits the options available to recycle and reuse the debris (UNDP Debris Management Guidelines, 2010).

Furthermore, the possibility that there are several types of unexploded ordinance (UXO) in the rubble is a crucial concern for post-conflict debris management. Normally, the work area should be swept for the unexploded ordinance as a precondition for any debris handling in the post-conflict phase, and the work area must be officially certified by the relevant government body. As such, the handling of debris is a high-risk activity due to hazardous and dangerous contents potentially contained in the rubble.

Policy Landscape 

The following section details the policy landscape regulating construction demolition waste in Lebanon. On May 12, 2024, the Ministry of Environment (MoE) issued a circular which provides guidelines for managing war-generated rubble. Regarding the establishment of temporary storage and final disposal sites, the circular calls for prioritizing degraded areas geographically close to affected zones, specifically quarries (of all kinds) on public or private property after the approval of the owners.

Furthermore, the circular prohibits the random dumping of rubble, including in landfills. It also calls for sorting in order to re-use and recycle materials, and for the separation of polluting and hazardous materials from the rest of the rubble, in accordance with decree 5605/2019. As for the waste that can neither be reused nor recycled, the circular calls for using it to rehabilitate quarries, while adhering to the environmental guarantees.

Another recent policy development with implications for the management of CDW involves the launching of the National Strategy for Integrated Solid Waste Management. The strategy was recently launched by the government after having been approved by the Council of Ministers pursuant to decision No.5 dated 17/12/2024. It aims to transition Lebanon to a more sustainable, efficient, and integrated waste management system, and to put an end to open dumping and burning of waste.

The strategy follows key principles based on Law No. 80 of 2018 on Integrated Solid Waste Management (ISWM), such as waste reduction, reuse, and recycling, and the principles of sustainability, decentralization, and the “polluter pays” (Council for Development and Reconstruction, 2024). Regarding CDW dumpsites, the strategy stipulates that remedial measures be taken, including sorting, crushing, and recycling; transferring of CDW to approved designated landfills; grading the surface; and covering with soil (re-vegetation). Further measures to be taken at the level of regulations include the introduction of a penalty system for uncontrolled disposal and developing technical specifications for rehabilitation (Council for Development and Reconstruction, 2024).

Currently, there is no specific legislation addressing CDW; instead, it falls within a broader framework for integrated solid waste management, as indicated in the National Integrated Solid Waste Management Strategy for Lebanon (February 2024).  Law No. 80 of 2018 on Integrated Solid Waste Management (ISWM) provides a framework for the management of solid waste, including CDW. In this law, CDW falls under non-household waste, which is solid waste produced from commercial, industrial, administrative, or other institutions (Article 1.4).

Law No.444/2002, the Environmental Protection Act, sets the basic principles and general provisions regulating environmental protection and management, the maintenance and preservation of environmental basins, and the assessment of the environmental impact of projects. This law defines the responsibilities and penalties for abusers and polluters of the environment.

Another relevant piece of legislation is Law No. 64 of 1988 on the protection of the environment against pollution from hazardous waste disposal and substances, which regulates the management of hazardous substances and toxic waste (FAOLEX Database, 2019). Legislative decree 7975/1931 prohibits the random dumping of solid waste around residential areas and stipulates that it should be removed and managed by the municipalities. Furthermore, there is a decree on the management of hazardous waste (decree 5605/2019), as well as decree 5606/2019 on sorting at source.

Regarding international conventions, Lebanon has ratified the Basel Convention (ratified by Law No. 387 of 1994) on the Control of Transboundary Movements of Hazardous Wastes and their Disposal, which aims to reduce the inter-state movements of hazardous waste and to minimize the toxicity and number of waste generated (UNDP Environmental and Social Management Framework, 2022).

Also, Lebanon is signatory to the Barcelona Convention for the Protection of the Mediterranean Sea Against Pollution—later amended as the Convention for the Protection of the Marine Environment and the Coastal Region of the Mediterranean (ratified by Law No. 292 of 1994). Despite this existing framework, its enforcement remains weak and the legal framework for solid waste management is still considered to be incomplete. Implementation plans and procedures are a prerequisite for effective implementation of CDW management.

Regarding the steps taken towards the removal of the rubble generated by the recent conflict with Israel, the Council of Ministers had approved in December 2024 the two specification booklets and their annexes for contracting demolition and removal operations (Matar, 2024). According to news sources, the Southern Council has announced in December 2024 that it had launched a call for tenders for the demolition and transportation of the war-generated rubble (L’Orient Today, 2024). The Public Procurement Authority has prepared tender specifications according to two formulas: mutual agreement contracts and tenders or requests for price quotations (Bazzi, 2024).

Challenges

Even prior to the most recent conflict with Israel, Lebanon was suffering from a persistent problem pertaining to the management of its solid waste. According to Tamraz et al., there is a lack of data on the amount of demolition waste generated and its composition. There is also a lack of documentation of the methods of handling and disposing of the resulting material (Srour et al., 2013; Tamraz et al., 2011).

Another gap concerning the management of CDW consists of the absence of infrastructure for recycling/disposal and management of demolished waste, and the inability to control open dumping. Also, a national investigation regarding the suitability of CDW for recycling is absent, as the CDW might contain various contaminants (UNDP Environmental and Social Management Framework, 2022).

The lack of coherent, enforceable legislation and an outdated solid waste policy framework have created a fragmented regulatory structure, hindering effective CDW management. Furthermore, the lack of financial resources is a main challenge for the development and implementation of disaster waste management, which requires a substantial budget. In the absence of financial resources, the cheapest method for handling waste, such as open dumping, becomes the norm (Al Tawil et al., 2023).

Why is this important?

The scale of the rubble generated during the recent conflict is unprecedented. Addressing the issue of rubble and CDW is critical, as landfills are overburdened, and improper handling poses severe environmental and public health risks. In the absence of disaster preparedness and response plans, as well as a national legislative framework that lays the foundation for disaster waste management, Lebanon is not equipped to manage the large quantities of generated demolished waste. The inadequate management of disaster waste streams prolongs the time needed for recovery, as well as increases the post disaster recovery and rehabilitation costs (cited in Al Tawil et al., 2023).

References:

OCHA. October 2024. Flash Appeal: Lebanon, October-December 2024 (October 2024).

World Bank Group. November 2024. Lebanon Interim Damage and Loss Assessment (DaLA) (November 2024).

Kallab, A., Kaskas, A. 2024. Towards a Sustainable Day After: Managing Demolition Rubble in the Aftermath of the 2024 Lebanon Conflict. AUB Nature Conservation Center.

Tamraz, S. N., Srour, I. M., & Chehab, G. R. (2011). Construction demolition waste management in Lebanon. In ICSDC 2011: Integrating Sustainability Practices in the Construction Industry (pp. 375-383).

MSB/UNDP. (2010). Debris Management Guidelines.  

Luther, L. (2017). Disaster Debris Management: Requirements, Challenges, and Federal Agency Roles

الأخبار ،الثلاثاء 3 كانون الأول 2024 ، مناقشة في ردم بحر الإوزاعي بركام الضاحية

Al Alkhbar, Tuesday, December 3, 2024, Discussion on filling the Awzai Sea with rubble from the suburb

Matar, Sarah. 2024. The New Arab. Lebanon’s Rubble... Mysterious Contracting Mechanisms and Features of Favoritism. مطر، سارة. 2024. العربي الجديد. أنقاض لبنان... آليات تلزيم غامضة وملامح محسوبيات

L’Orient Today. December 2024. Southern Council Announces Tender for Rubble Clearance.

Bazzi, Fouad. December 2024. Al Akhbar. “Public Procurement” prepared contracts by mutual consent and price survey: debris removal is proceeding slowly.

 بزي، فؤاد. كانون الأول 2024. الأخبار. «الشراء العام» جهّزت عقوداً بالتراضي وباستقصاء الأسعار: رفع الأنقاض يسير ببطء.

Al Tawil, L., Massoud, M. A., Bardus, M., & Alameddine, I. (2023). Disaster waste management challenges and enabling factors for strategic planning: The case of the Beirut Port explosion. Waste Management & Research, 41(8), 1382-1389.

Srour, I. M., Chehab, G. R., El-Fadel, M., & Tamraz, S. (2013). Pilot-based assessment of the economics of recycling construction demolition waste. Waste Management & Research, 31(11), 1170-1179.

UNDP. (2020). Demolition Waste Assessment Outside the Port of Beirut.

Basbous. (2021). From the Rubble of Beirut. The Architectural Review. City Portraits.

UNDP. (2022). Beirut Critical Environment Recovery, Restoration, and Waste Management Program (P176635). Environmental and Social Management Framework.

United States Environmental Protection Agency. (2024). Learn About Asbestos.

Food and Agricultural Organization of the United Nations. (2019). FAOLEX Database. Lebanon. Law No. 64 of 1988 on the protection of the environment against pollution from hazardous waste disposal and substances.

Council for Development and Reconstruction. (2024). Final Draft National Integrated Solid Waste Management Strategy of Lebanon. Executive Summary.

Ministry of Environment. 2017. History.

Law No.80 of 2018 on Integrated Solid Waste Management

Law No.292 of 1994 on Authorization for the Government to Join Two Protocols Attached to the Convention for the Protection of the Mediterranean Sea signed in Barcelona on 02/16/1976

United Nations Environment Programme. Mediterranean Action Plan. Barcelona Convention and Amendments.

تعميم رقم 6/1: الارشادات البيئية لادارة ردميات الحرب

Circular No. 6/1: Environmental Guidelines for the Management of War Rubble