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 ranks among the countries with the largest gender gap globally, positioned at 145 out of 153 countries in the World Economic Forum's Gender Gap report for 2020. Violence against women in Lebanon is a deeply rooted issue, intensified by political and economic systems that are also entrenched within a legal framework for personal status heavily influenced by religious courts. This has led to limited participation of women in the labor force and political life.

 

Despite gaining voting rights in 1952, Lebanese women's representation remains dramatically low more than seven decades later. As of the latest data, only 6.25% of parliament members are women, a record achieved in 2022 elections. The first cabinet to appoint female ministers was in 2004. Since then, there have been several setbacks in female representation, such as in former cabinet where there was only one female out of 24 ministers. However, the most recent cabinet formation saw an improvement, with five women out of 24 ministers. When compared to other regional countries such as Jordan for example, it shows that Lebanon is behind, as the Kingdom has introduced women quota in 2007 and in 2023, 12.3% of seats in Jordan's national parliament were held by women (WB, 2023).

 

In recent years, the economic crisis, political instability, the COVID-19 pandemic, and the 2020 Beirut port blast, as well as the Israeli war in 2024 have contributed to an increase in violence against women. Economic hardship and lockdown measures have led to higher rates of domestic violence, as women are confined to their homes with their abusers (UNFPA, 2021). Internal Security Forces (ISF) data indicates a 241% increase in reported domestic violence cases during the COVID-19 pandemic (2020-2021) compared to the previous 18 months (2018-2019) (Fe-Male, UN-Women, Kafa, 2023). Women have also faced higher occupational health risks, with 75-80% of healthcare workers in Lebanon being female. Economically, women have been more vulnerable to job losses, especially in sectors like hospitality and tourism. The burden of unpaid care work has also increased for women, who already spent a significant amount of time on such tasks before the pandemic (Chebaro, 2020).

 

In 2020, 43% of women and 30% of men reported witnessing violence or knowing a woman who had experienced violence (Rached, 2023). Additionally, the percentage of transgender individuals who felt at risk of gender-based violence in their neighborhoods increased from 48% in 2021 to 54% in 2022. The Gender-Based Violence (GBV) Management Information System (IMS) Annual Report for 2023 indicated that 95% of reported GBV cases involved women, highlighting the persistent and pervasive nature of gender-based violence (UN Women, 2023).

 

Lebanese women engaged in public affairs frequently encounter various forms of violence and significant barriers, driven by societal norms and religious interpretations, mainly male-dominated political parties, a legal system that disadvantages women, and an electoral system favoring men (AUB). Women are also underrepresented in the media, which perpetuates gender stereotypes (Marsad VAWP, 2023). This underrepresentation affects public perception by reinforcing traditional gender roles and limiting the visibility of women as leaders and experts.

 

Lebanon's religion-based personal status laws often discriminate against women, creating barriers to justice and protection. These laws vary between religious communities, leading to inconsistencies in women's rights. Issues like marriage, divorce, child custody, and inheritance are largely governed by religious courts that often uphold patriarchal norms HRW Country Report, 2021). The passage of a unified personal status law is crucial for breaking the patriarchal structure entrenched in every layer of society. Such a law would significantly contribute to ending the systemic discrimination against women. However, efforts to reform these laws face significant resistance from religious and political leaders who see such changes as threats to their authority.

 

Cultural norms that prioritize male authority and traditional gender roles limit women's autonomy and reinforce their subordinate status. This perpetuates gender-based violence and discourages women from seeking help such as legal or psychological support due to fear of stigma and retaliation.

 

Pro-Women Legislation Since Independence

Organized Lebanese women’s groups first emerged in the 1920s with the Women’s Union, focusing on cultural and social issues. Lebanese women married to foreign men cannot pass on their nationality to either their spouses or children. Women further gained the right to be elected to local councils in 1963 and to travel without their husband’s permission by 1974 (Hivos, 2020).

 

Birth control pills were illegal until 1983. Abortion remains illegal to this day, except when the mother’s life is at risk. The Penal Code imposes prison sentences for women who undergo abortions and those who perform them. Despite these strict laws, abortions still occur in private settings, often at high costs and under unsafe conditions. This situation leads many women to resort to unsafe methods, posing significant health risks. Efforts to amend the law have been minimal, making it a persistent public health concern (Fathallah, 2019).

 

In 1987, amendments to the National Social Security Fund (NSSF) granted women equal eligibility for end-of-service indemnities, though women are still excluded from certain benefits (Abed, Baroud, Moussawi, 2020). Additionally, while recent reforms have allowed women to insure their spouses through the NSSF, disparities still exist in the coverage and benefits provided to women compared to men. By 1993, women could testify in land registry matters, and in 1994, married women could practice trade without their husband’s permission. Female diplomats were allowed to continue their careers regardless of marital status, and in 1995, women could enter life insurance contracts without their husband’s permission (Lebanon Support & RDFL, 2017).

 

In 1997, Lebanon ratified the Convention on the Elimination of All Forms of Discrimination Against Women (CEDAW) which is described as an international bill of rights for women, aiming to eliminate discrimination in all areas and promote equal rights (OHCHR). This ratification was a significant step towards promoting gender equality and protecting women's rights in Lebanon. However, the Lebanese state stipulated reservations on articles 9 (right of women to pass their nationality to their children) 16 (eradicating discrimination against women in family and marriage matters, such as rights and responsibilities in marriage, guardianship, and personal rights) and 29 (about options for referring disagreements on interpreting CEDAW clauses to arbitration or the International Court of Justice) limiting the full implementation of the convention.

 

In 1998, the National Commission for Lebanese Women (NCLW) was established to advocate for the rights of women and girls in Lebanon and to integrate gender perspectives into laws and policies (NCLW). In 2000, Lebanon’s labor law was amended to ensure equal provisions for male and female government employees. By 2001, women were granted maternity and health benefits, as well as family allowances.

 

In 2011, Lebanon abolished article 562 of the Criminal Code, which had reduced penalties for killing a female relative or spouse to “protect family honor” (a practice known as “honor killing”). That same year, Law No. 164 against human trafficking was enacted, and laws for Sunni Muslims were amended to raise the age limit for child custody. In 2014, maternity leave was extended to 10 weeks, and Law 293 for protection from family violence was passed (Lebanon Support & RDFL, 2017).

 

Post-2014, Lebanon continued to make small legislative advancements in favor of women’s rights. In 2017, the Municipalities Law was amended to allow married women to run for municipal council in their places of origin before marriage (The Daily Star, 2017). In 2020, Lebanon passed the landmark Anti-Sexual Harassment Law No. 205, which criminalizes sexual harassment and provides some sorts of protections for victims of gender-based violence, punishing perpetrators with up to four years in prison and fines up to 50 times the minimum wage (Azhari, 2020). In the same year, amendments to Law 293 on protection from family violence broadened the definition of family violence, recognized economic violence, increased judicial support, extended protection orders to more children, and established a fund to support victims and rehabilitate perpetrators. Tougher penalties for offenders were also introduced (Smadi, 2021).

 

Also in 2017, the parliament abolished article 522 of the penal code, which exempts sexual offenders from prosecution if they marry the victim. However, they retained similar provisions in Article 505 (sexual intercourse with minors), and Article 518 (promising marriage to women or minors), which now gives offenders the option of imprisonment or marrying the victim aged 15-18. This decision raises concerns about the law's consistency, as intercourse with minors is considered a crime. The retention of these provisions reflects cultural and religious norms, essentially legalizing child marriage under civil law. Additionally, Article 503, which exempts husbands from prosecution for marital rape, remains unchanged. This highlights the ongoing influence of patriarchal attitudes in Lebanon's legal system (Kafa, 2017).

 

In December 2020, the Lebanon Reform, Recovery, and Reconstruction Framework (3RF) was launched to address Lebanon’s urgent reform needs and support recovery efforts following the Beirut port explosion. The 3RF focuses on people-centered recovery, critical reforms, and long-term reconstruction, while emphasizing gender equality through women's empowerment, inclusive policies, and active participation in decision-making. Despite some progress in legislative reforms, the persistent underrepresentation of women in leadership roles, coupled with rising domestic violence and economic hardships, underscores the urgent need for comprehensive gender-responsive policies. Addressing these challenges is essential to ensuring that Lebanon’s recovery is not only inclusive but also transformative for women’s rights and protection.

 

Progress Hampered by Implementation and Enforcement

Despite notable progress in women’s rights legislation thanks to tremendous efforts of civil society organizations, the effectiveness of these laws is questioned due to persistent challenges, including cultural resistance, lack of law enforcement, as well as political and religious opposition.

 

The current code of personal status laws, governed by religious courts, discriminate against women, leading to inconsistencies in rights and protections. Civil marriage cannot be contracted in Lebanon and there is no minimum age for marriage, often leading to child marriage. In addition, Lebanese women cannot pass their nationality to their spouses or children (Lebanon Support & RDFL, 2017).

 

While the Anti-Sexual Harassment Law No. 205 is a positive step, it falls short by focusing solely on criminalization, neglecting aspects such as prevention, labor law reforms, monitoring, and civil remedies. It also lacks comprehensive measures and realistic protections for victims, particularly in the workplace (HRW, 2021).

 

Support services for violence survivors, such as shelters, legal aid, and psychological support, are lacking. Women face barriers to justice and protection, including financial barriers, legal obstacles, and inadequate law enforcement response. As a matter of fact, the 293 Law on Family Violence has not yet been fully implemented and the establishment of the ISF Special Family Violence Unit as well as the special fund to support victims are still pending, more than ten years after the law was passed (Moussawi Yassine, 2017). In addition, societal stigma discourages them from seeking help (Beyond Group - UN Women, 2021). Due to family laws and cultural norms normalizing violence, married women face more legal restrictions than unmarried women, and patriarchal norms persist (Lebanon Support & RDFL, 2017), hindering women's fulfillment of their potential.

 

WHY IS THIS IMPORTANT?

Addressing violence against women is crucial as it is a serious human rights violation and a major public health issue, leading to physical, mental, and reproductive health problems (WHO). Economically, it affects women’s ability to work, reduces productivity, and increases healthcare costs, hindering economic growth. Socially, it impacts community stability and well-being, perpetuating a cycle of abuse (UN Women, 2023). Political violence undermines women's participation in political roles, affecting their representation and equity. Media portrayals reinforcing gender stereotypes further exacerbate their underrepresentation (UN Women, 2021).

 

For the majority of political stakeholders, women’s rights and gender equality are never a priority, especially during crises, but they are crucial for economic recovery. Encouraging women's participation in the formal economy can expand Lebanon's tax base and enhance the fiscal sustainability of its social security programs. Key recommendations include investing in social protection systems, addressing gender discrimination in labor and social security laws, and avoiding austerity in health and education. Additionally, fast-tracking pension reform and promoting progressive taxation are essential for a more equitable economic system (UN Women Lebanon, 2020).

 

In conclusion, although Lebanon has made legislative strides toward gender equality, these laws alone are insufficient to create lasting change. Comprehensive efforts, including cultural change, stronger enforcement mechanisms, and increased support services, are essential for real improvements in the lives of women. Addressing these issues requires legal reforms, public awareness campaigns focusing on the importance of gender equality in building more just societies and solid economies, as well as empowering women through education and economic opportunities. Collaboration among civil society organizations, government agencies, and international partners is necessary to create a more equitable and just society for all women in Lebanon.

 

 

 

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