Action Fiche for Lebanon

Transcription

1 Action Fiche for Lebanon 1. IDENTIFICATION Title/Number Improving infrastructure in Palestinian refugee camps in Lebanon (ENPI/2012/ ) Total cost EU contribution: EUR 5,000,000 Aid method / Method of implementation Project approach centralised (direct) and joint management with United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) DAC-code Sector 2. RATIONALE 2.1. Sector context In spite of their longstanding presence in Lebanon, Palestine refugees remain excluded from key facets of social, political and economic life in this country. Poverty has remained very high among Palestine refugees, particularly within the camp enclaves, wherein two-thirds of refugees reside. In spite of the continued growth of camp population, the surface areas of the camps have not increased since they were first built. General living and environmental health conditions are therefore extremely poor. En 2010, an EU-funded study, undertaken by American University of Beirut (AUB), considers that the situation of the Palestine refugees living in Lebanon is precarious. This research has highlighted that over two-thirds of Palestinians residing in Lebanon are poor (subsisting on less than USD 6 per day) while 6.6% of these exist in extreme poverty (less than USD 2.17 per day). In 2005, the Government launched the Camp Improvement Initiative to address the problems in the camps. Meantime, some reform initiatives have been taken including the establishment of the Lebanese Palestinian Dialogue Committee, the decree of the Minister of Labour allowing Palestinian refugees the right to work in 70 professions and the efforts to legalize non-id Palestinians living in Lebanon. The most positive steps recently taken by policymakers on Palestine refugees are the legal amendments to the labour and social security laws approved by the Lebanese Parliament on 17 August 2010 in addition to the commitment of the Government of Lebanon to reconstruct Nahr el-bared camp. In December 2011, the Council of Ministers finally approved the Master plan for Mohajaheen in the adjacent area of Nahr el-bared to accommodate around one hundred Palestine refugee families. With this long waited positive decision, the suspended EU-funded project ( reconstruction of the Mohajaheen area EUR 3.3 million) can now be implemented. In the absence of access to public services and infrastructure, United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) is responsible EN 1 EN

2 for co-ordinating the provision of education, health, relief and social services and the delivery of infrastructure within each of the twelve camps in Lebanon. The programme is coherent with the priorities set down in the Joint Communications of the European Commission and of the High Representative of the EU for Foreign Affairs and Security Policy entitled "A partnership for democracy and shared prosperity with the Southern Mediterranean" 1 and "A new response to a changing Neighbourhood" Lessons learnt For the last three years, the EU has been involved in reconstruction or rehabilitation of Palestinian camps, shelters or collective works through different projects funded under various instruments. Those projects are mainly implemented by UNRWA who acquired experience in the reconstruction as well as the rehabilitation of infrastructure works (Health infrastructures project in Beirut camps and the reconstruction of the Nahr el-bared camp). All Results Oriented Monitoring (ROM) and evaluations have highlighted the high relevance and the real impact of those reconstruction/rehabilitation projects. Nevertheless, the two main lessons learnt for infrastructure projects are the need to prepare in details and prior to signature of the EU funding the detail design, including the feasibility study and the tender dossier for the rehabilitations foreseen as well as to closely monitor with the authorities to avoid blockages in the actual implementation of the project Complementary actions This action is complementary to the support provided by the EU in the infrastructures for Palestine refugees in Lebanon through different lines and thematic and to the assistance of some members states: European Union is rehabilitating through European NGO some houses in the adjacent areas in Nahr el-bared and shelters in the gatherings; on the European Neighbourhood and Partnership Instrument (ENPI) and Instrument for Stability (IfS), the infrastructure projects implemented in Beirut camps (EUR 4 million) and Nahr el-bared (EUR 19.9 million) have adopted an innovative approach that will be used for this action. A closed co-ordination is foreseen with the EU Member States and particularly the Spanish Agency for International Development Cooperation, currently rehabilitating some health centres in Shatila, Mar Elias camp and Wadi el-zeina ; the Italian cooperation, currently funding the rehabilitation of buildings in the adjacent areas of Nahr el-bared around the Mohajaheen area; the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) water project in the adjacent area of Nahr el- Bared and the French Agency for Development (AFD) who is going to reconstruct the Health centre and a new school in Nahr el-bared camp. The co-ordination will be also done with the Swiss Agency for Development and Cooperation (SDC) who have just started a new project for the remediation and upgrading of camp water supply networks in seven Palestine refugee camps in Lebanon. 1 2 COM(2011)200 of COM(2011)303 of EN 2 EN

3 In September 2011, under the Instrument for Stability, the EU has decided to grant an additional EUR 12 million on shelters and rentals subsidies. The activities are already been implemented and are, indeed, complementary of this action proposed. This action is also complementary of the EU support in Education, scholarships as well as our support to the Global fund for UNRWA. The 4 th component of this project is complementary of the on-going project supporting the reconstruction of Nahr el-bared camp and specifically of the contract ENPI/2009/ Reconstruction of the Mohajareen Area in Nahr el-bared implemented by Norwegian Refugee Council Donor co-ordination The EU has a close working relationship with the Lebanon-Palestinian Dialogue Committee (LPDC), which is an inter-ministerial government body formed by the Lebanese Council of Ministers, as well as the Palestine political representation. Throughout the implementation of this project, the strengthening of these relations will be ensured. On a monthly basis, UNRWA organises a donor meeting which the EU always attends as well as the main donors. Further ad hoc meetings are organised to discuss specific areas of intervention or new initiatives. At the local level, a continuous and regular dialogue is maintained by UNRWA with representatives of Lebanese municipalities, and among Palestine refugees with popular committees and local political leaders. UNRWA and the EU Delegation in Lebanon have developed a strong partnership and the EU is always informed of any difficulty faced in the implementation of the projects. 3. DESCRIPTION 3.1. Objectives The overall objective of this project is to improve the life of Palestine refugee families. The specific objective of this project is to contribute to the rehabilitation of the following collective and individual infrastructure: Camp infrastructure in Ein el-hilweh camp. Six Health Centres in Mieh Mieh, Ein el-hilweh, El Bus, Beirut Polyclinic, Beddawi and Burj el-barajneh camps. Some of the most badly deteriorated shelters belonging to the poorest families in the Palestine camps in Lebanon. The Mohajaheen area in the adjacent area to the Nahr el-bared camp Expected results and main activities (1) Upgrade camp infrastructure in Ein el-hilweh camp EN 3 EN

4 The main problems identified are the corrosion of the sewer system and the dearth of a storm water drainage system. With this project, UNRWA will install new and separate storm water drainage and sewage systems, replace the old water supply network with a new system, provide proper household connections, connect the camp storm water and sewer networks to the municipality, clear out the internal sewers and water channels, and upgrade old roads and pathways to an acceptable standard. 66,000 residents from Ein el-hilweh camp will benefit from a better environment through the elimination of flooding in the southern sector of the camp and access to potable water will be provided to 15,000 residents. (2) Rehabilitate six Health Centres in Mieh Mieh, Ein el-hilweh, El Bus, Beirut Polyclinic, Beddawi and Burj el-barajneh camps The rehabilitation of the primary health centres has two broad objectives. The first is to improve overall safety in the health centres and in particular to decrease the risk of hazards to both patients and staff by upgrading the physical fabric of each building, electrical rewiring, ventilation and air conditioning. The second objective is to enhance the quality of care provided through upgrading equipment for patient care. Over 100,000 persons will benefit from improvement primary health care. (3) Rehabilitate some of the most badly deteriorated shelters in priority camps in Lebanon belonging to the poorest families in the camps UNRWA s new approach to shelter rehabilitation is built upon five pillars: target group, physical evaluation of shelters, self-help approach, revised specifications and a revised scoring system for targeting those families most in need. Instead of relying on external contractors to carry out the work, UNRWA is introducing a self-help approach by directly involving camp residents in the improvement of their housing. The refugees will receive financial support in order to do the unskilled work themselves and/or to hire local tradesmen for the skilled work required. UNRWA will also provide technical support throughout the process. To ensure that vulnerable families are not discriminated against in this approach, alternative approaches will be adopted for those who lack the capacity to undertake or manage the work. In such cases, the work will be tendered to external contractors. This intervention will benefit at least to 1,000 persons. (4) Contribute to the construction of the Mohajaheen area Under the EU funded project Support to the Reconstruction of Nahr el-bared (ENPI/2009/ ), a grant contract was signed Reconstruction of the Mohajareen area in Nahr el-bared" (ENPI/2009/ ) with the Norwegian Refugee Council (NRC) for the reconstruction of houses for 101 Palestine refugee families. The design was done and approved by the community and the local authorities in NRC launched two tenders for design-supervision and for the reconstruction. But some derogation for the Master Plan needed the approval of the Council of Ministers. Due to the political situation, this approval was only given in December Because of this long delay, the estimated costs exceed the available budget (EUR 3.3 million). The additional cost is estimated at EUR 600,000. NRC will contribute for 50% of this additional cost and the EU will provide through this project the other 50% (EUR 300,000). It has to be mentioned that given that this EN 4 EN

5 project is the only reconstruction project in the adjacent area of Nahr el-bared it should ensure a very good visibility for the EU Risks and assumptions As with all construction projects, regular maintenance operations and works can be negatively affected by disruptions to the security situation in Lebanon and any violent eruptions can derail progress at any point. Regarding the sensitive issue of access to Palestine refugee camp, UNRWA has experience in dealing with it through continuous dialogue with the Lebanese Army, the Lebanese-Palestinian Dialogue Committee, and relevant municipalities. Potential community frustration is dealt with by community participation and ongoing dialogue with stakeholders. Considering the volatile environment of Ein el-hilweh camp, a communication officer will be recruited and a communication strategy will be drafted to enhance communication with the community by including a participatory approach, increase transparency and neutrality about the project implementation and develop channels for community participation. Beyond the project implementation per se, there is always the risk of an unexpected increase in construction material prices (steel, concrete, etc.) as well as an increase in the price of oil Cross-cutting Issues The action is consistent with many of the cross-cutting issues identified in the European Union Consensus on Development. Gender Women, Men, Children and Young People: The action is gender-sensitive, in that the measures will benefit all men, women, children and young people living in the communities which are being rehabilitated. For the shelter rehabilitation, the involvement of women in the discussions related to the needs and the rehabilitation works of their shelters is foreseen. Governance and Ownership: the sub-project to renew the camp infrastructure in Ein el-hilweh is innovative in that it reflects a more community-oriented approach to promoting good governance as part of the implementation and ongoing sustainability of the project. While the Popular Committees are largely responsible for issues relating to camp governance, there has historically been little consultation with community residents themselves in relation to their needs. Sector Committees will be established and will be consulted in relation to the detailed design and implementation of the project. The Sector Committee will endorse the final proposals and will convene meetings with the community interest groups (including youth and women s groups). Finally, the Sector Committee will also liaise with UNRWA in relation to the sequencing of works so as to ensure minimum disruption to the community and will also assist UNRWA in solving problems during the construction programme as required. On the other hand, under the Instrument for Stability, a study of governance mechanisms in Palestine refugee camps has been conducted. Its conclusions could allow a better integration of this dimension. Environment: The infrastructure rehabilitation in Ein el-hilweh and the shelter rehabilitation works in this and other camps will also contribute significantly to improving environmental sustainability of the camps concerned. The rehabilitation of shelters will mean improved levels of hygiene, protection from the rain and cold, as EN 5 EN

6 well as better ventilation to reduce the risk of illnesses. Shelter rehabilitation will also provide families with increased safety and security, hopefully reducing stigmatisation and marginalisation from the rest of the camp community Stakeholders All the stakeholders were consulted during this preparatory period. The direct beneficiaries are: For the three first components UNRWA is in charge of the implantation of the action, the overall co-ordination and the reporting to EU and others stakeholders. For the fourth component, NRC in charge of the implementation of the 4 th component reconstruction of the Mohajaheen area. The Lebanese government, the army, the Lebanese-Palestinian Dialogue Committee (LPDC) and the local authorities (municipalities) who will facilitate the access to the camps, insure the security and stability and facilitate relations between the two communities. The population in the camps who will benefit from the project. The beneficiaries in the camps (old camp for the three first components or in the adjacent area, Mohajaheen, for the fourth one) will be closely involved in the implementation of the project. 4. IMPLEMENTATION ISSUES 4.1. Method of implementation Joint management through the signature of an agreement with the international organisation UNRWA in accordance with Article 53d of the Financial Regulation. UNRWA complies with the criteria provided for in the applicable Financial Regulation. UNRWA is responsible for co-ordinating the provision of education, health, relief and social services and the delivery of infrastructure within each of the twelve camps in Lebanon. A Standard Contribution Agreement will be concluded, in accordance with the Financial and Administrative Framework Agreement (FAFA) concluded between the European Commission and the United Nations on 29 April For the reconstruction of Mohajaheen area, direct centralised management, upon prior approval for a direct grant award to NRC according to Article f of the Implementing Rules. Audit and evaluation activities will be implemented through procurement under direct decentralised management (service contracts). The change of management mode constitutes a substantial change except where Commission "re-centralises" or reduces the level of tasks previously delegated to EN 6 EN

7 beneficiary country, international organisation or delegate body under, respectively decentralised, joint or indirect centralised management Procurement and grant award procedures Joint management All contracts implementing the action are awarded and implemented in accordance with the procedures and standard documents laid down and published by the relevant International Organisation (UNRWA). Direct centralised management 1) Contracts All contracts implementing the action must be awarded and implemented in accordance with the procedures and standard documents laid down and published by the Commission for the implementation of external operations, in force at the time of the launch of the procedure in question. Participation in the award of contracts for the present action shall be open to all natural and legal persons covered by ENPI Regulation. Further extensions of this participation to other natural or legal persons by the concerned authorising officer shall be subject to the conditions provided for in Article 21(7) ENPI. 2) Specific rules for grants The essential selection and award criteria for the award of grants are laid down in the Practical Guide to contract procedures for EU external actions. They are established in accordance with the principles set out in Title VI 'Grants' of the Financial Regulation applicable to the General Budget, ENPI Regulation. When derogations to these principles are applied, they shall be justified, in particular in the following cases: Financing in full (derogation to the principle of co-financing): the maximum possible rate of co-financing for grants is 80% of total eligible costs. Full financing may only be applied in the cases provided for in Article 253 of the Commission Regulation (EC, Euratom) No 2342/2002 of 23 December 2002 laying down detailed rules for the implementation of the Financial Regulation applicable to the General Budget. Derogation to the principle of non-retroactivity: a grant may be awarded for an action which has already begun only if the applicant can demonstrate the need to start the action before the grant is awarded, in accordance with Article 112 of the Financial Regulation applicable to the General Budget Indicative budget and calendar The overall indicative budget for the infrastructure component of this proposal amounts to EUR 5,000,000 distributed on the following budget lines: Upgrade camp infrastructure in Ein el-hilweh camp(joint EUR 2,900,000 management) EN 7 EN

8 Rehabilitation of Health Centres (joint management) Rehabilitation of shelters (joint management) Contribute to the reconstruction of Mohajaheen area (grant direct centralised management) Audit and evaluation (service - direct centralised management) Contingencies EUR 500,000 EUR 1,000,000 EUR 300,000 EUR 50,000 EUR 250,000 UNRWA is currently updating all the technical studies for Ein el-hilweh and the rehabilitation of the Health centres, accessing the shelters in the different camps and preparing the tenders to be launched once the Decision is taken. For the reconstruction of Mohajaheen area, direct centralised management upon prior approval for a direct grant award to NRC according to Article f of the Implementing Rules. NRC has been working on Mohajaheen for the last two years under a grant contract Reconstruction of the Mohajareen area in Nahr el-bared. For this action, the foreseen operational duration is 48 months from the adoption of the Financing Decision Performance monitoring Achievements will be monitored regularly by UNWRA and the beneficiary NGO and the results will be reported to the EU Delegation. The key performance indicators will be detailed in the Contribution Agreement and in the grant contract. The EU Delegation task manager will carry out at least one monitoring mission a year for each Component. It is expected that this project will also be subject to the regular ROM monitoring missions Evaluation and audit The project will be subject to mid term and final evaluations. If necessary, ad hoc audits or expenditure verifications assignments could be contracted by the European Commission on all contracts. All auditing matters related to the contribution agreement with the international organisation UNRWA are governed by the Verification Clause annexed to and forming an integral part of the Financial and Administrative Agreement (FAFA) concluded between the European Commission and the United Nations, signed on 29 April An amount of EUR 50,000 is earmarked for audit and evaluation purposes which will be implemented through procurement under direct centralised management (service contracts) Communication and visibility The European Commission will ensure that adequate communication and visibility is given by the contracting parties to the EU funding. A specific provision is foreseen to EN 8 EN

9 ensure the overall visibility of this project and will be integrated into the Contribution Agreement with UNRWA and in the grant contract. EN 9 EN

10 Action Fiche for Lebanon 1. IDENTIFICATION Title/Number Mine action in Lebanon: clearance activities and institutional support (ENPI/2012/ ) Total cost EU contribution :EUR 10,000,000 Aid method / Method of implementatio n Project approach Direct Centralised Management and Joint Management (United Nations Development Programme) DAC-code Sector Landmine Clearance 2. RATIONALE 2.1. Sector context After ratifying the Convention on Cluster Munitions (CCM), Lebanon hosted in September 2011 the Second Meeting of States Parties to the Convention on Cluster Munitions. On this occasion the Lebanon Mine Action Centre (LMAC), the national authority in charge of all aspects of humanitarian mine action, presented its National Mine Action Strategy. This strategy has been designed to enable Lebanon to comply with the obligations of the CCM and to be implemented in the spirit of the Ottawa Anti-Personnel Mine Ban Convention (Ottawa Treaty) that has not been signed yet. The strategy focuses on the following: Humanitarian de-mining : clearance of polluted lands is foreseen by end 2020, provided the financial means are made available both at national and international levels (over USD 200 million), in compliance with the principles of community participation and empowerment, development, equity, social justice and accountability; Mine risk education (MRE)/mine victim assistance (MVA) to provide information, support and integration to the population concerned; Advocacy, to stigmatise the use of landmines and cluster munitions, and assistance to other countries concerned by the mine problem. Lebanon faces a severe problem of mine contamination, affecting various areas of the country. In Lebanon the problem is particularly acute as the level of contamination is high with regards to its size and population density; the land availability is crucial to face the needs for socio-economic purposes. As of December 2011, million square meters remain to be cleared, i.e., half of the total initial polluted areas. Amongst a total of 306 impacted communities, representing over 1 million inhabitants, hundreds of them are still at risk and have EN 10 EN

11 less economic opportunities. Since 1975, landmines have killed and injured more than 3,800 people, cluster bombs more than 400 between August 2006 and December The current clearance needs are beyond the existing level of LMAC human resources capacity, therefore, in order to ensure that the LMAC can respond to the management needs of clearance operations in compliance with international standards and implement its mine action strategy, this capacity should be complemented. Through the proposed project the European Union (EU), as defined in the National Indicative Programme (NIP), continues to support the LMAC and the clearance operations to improve the recovery conditions and reinvigoration of Lebanon in its most affected areas. This will also contribute to inclusive development reducing inequalities and increase the standards of living of the population, as foreseen in the Joint Communication of the European Commission and of the High Representative of the EU for Foreign Affairs and Security Policy of 25 May 2011 "A new response to a changing Neighbourhood" 3. The programme is coherent with the priorities set down in the Joint Communications of the European Commission and of the High Representative of the EU for Foreign Affairs and Security Policy entitled "A partnership for democracy and shared prosperity with the Southern Mediterranean" 4 and "A new response to a changing Neighbourhood" Lessons learnt The EU has been involved in de-mining activities in Lebanon since through 4 programmes. A fifth programme of EUR 7 million is under implementation (Programme de Déminage) and was subject to monitoring and a midterm evaluation that underlined the relevance of EU intervention in Mine Action and the quality of its programme. EU action should be pursued and sustained in the long run, building on the previous results and on the excellent relationship established with its main partner and Beneficiary, the LMAC who demonstrated its ownership in Mine Action. A very targeted support should now be provided to the LMAC in term of capacity building in very specific areas on top of the traditional institutional support aiming at ensuring that the essential operational clearance management capacities are in place. Although the approach adopted for the on-going programme targeting cluster bombs and landmines proves to be adequate, there is still space for improvement of its efficiency by enforcing the competition between implementing partners. Therefore, design of the call for proposal for this proposed project will seek to be even more results-oriented and to define precise objectives defined in close collaboration with the LMAC Complementary actions The EU remains today the first donor in the field of de-mining in Lebanon. 3 4 COM(2011)303. COM(2011)200 of EN 11 EN

12 In the field of mine clearance, currently, the main countries to provide some support are Australia, Belgium, Germany, Italy, Norway, the United Kingdom and the USA. The United Nations Development Programme (UNDP) has been involved since many years in capacity building and is planning a third phase of its current assistance programme, funded by Belgium, the EU and Italy, that ends in December The United Nations are also present in de-mining activities through the United Nations Interim Force in Lebanon (UNIFIL) and the Engineers Regiments of Belgium, Cambodia, China, France, Italy and Spain. France has decided to set up jointly a Demining Instruction Centre, with the aim of forming instructors from various Arab countries, both from the military and civilians. A twinning agreement is planned with the French Army s Academy for Demining, which will encompass the whole curriculum of the new Centre. A closed coordination is foreseen with this action. The United States are also active in Mine Action in the areas of technical support, mine victims assistance and surveys in financing a national non-governmental organisation (NGO). Lebanon assumes its share of responsibility in mine action through the Ministry of Defence, who oversees and provides the basic structure of the LMAC; the Ministry of Health who provides medical care to the survivors; the Ministry of Social Affairs who provides basic socio-economic rehabilitation services; the Ministry of Education who contributes to mine risk education through its trained health and teaching personnel Donor co-ordination The co-ordination process with the Beneficiary country occurs through regular bilateral meetings that aims at ensuring the proper implementation of the current mine action programme. Meetings took place also through the Project Board Meetings organised in the framework of the UNDP Mine Action Assistance Programme to which the EU contributes an amount of EUR 650,000. As indicated previously, several donors are active in mine action in Lebanon and in order to avoid overlaps and improve the efficiency of the various actions undertaken, the EU has been calling for the reactivation of co-ordination mechanisms, such as the donors working groups and the ones foreseen, under the responsibility of the LMAC, in the National De-mining Policy. This document foresees that an Inter-ministerial Advisory Committee shall meet semi-annually to provide guidance and priorities on government strategic plans that affect Mine Action, which should reinforce the link between clearance, rehabilitation and overall development, and that an International Support Group shall be regularly convened. 3. DESCRIPTION 3.1. Objectives The overall objective of the project is to assist Lebanon in restoring the conditions necessary for the security of its population and its economic and social development. EN 12 EN

13 The specific objective is to contribute to reinforce the country ability to reduce the mine risk so that land can be released to the population, and that people continue to be informed and benefit from better socio-economic opportunities Expected results and main activities For several years now, the EU has clearly committed itself to support Lebanon in its efforts to turn the country into a safe place, to promote balanced development opportunities throughout the whole country. This commitment to accompany the Lebanese Mine Action has been reinforced with the ratification of the CCM, and the resulting obligations, and Lebanon s will to work within the spirit of the Ottawa Treaty, although it has not been signed yet. Therefore the EU intervention will be linked to the strategy and needs identified in the National Mine Action Strategy and build on the following activities aiming at reaching linked results: (1) Institutional support and capacity building The LMAC needs to have its human and operational capacity strengthened in order for it to assume its role in overseeing, managing and co-ordinating all humanitarian clearance in Lebanon as it is currently staffed to face a long term residual risk. Therefore the EU will provide the LMAC with institutional support through the very specific expertise it still requires, essentially, but not exclusively, in the areas of strategy and policy planning, communication and overall co-ordination. This support should give the LMAC the ability to fully assume the mandate entrusted to it and fulfil the obligations deriving from the CCM in terms of reporting, advocacy, international co-operation and assistance. (2) Mine clearance activities To ensure continuity with its past and on-going intervention the EU will finance demining teams to clear lands, and undertake the related activities, including training and equipment supply so that: Lebanon can meet the CCM obligations related to clearance and destruction of clusters and remnants and that land is released to the population; Lebanon has the technical expertise and the means to undertake mine clearance operations, and the related activities (surveys, quality control...), according to international standards, in conformity with its national strategy and the CCM obligations. (3) Mine victims assistance and mine risk education Following the MVA/MRE strategy prepared by the LMAC, which also aims at complying with the related CCM obligations, the EU will mainly contribute to: Communication and information campaigns so that people are informed of the mine risk and the victims informed of their rights and benefits that are entitled to receive; EN 13 EN

14 Rehabilitation and reintegration activities so that people can take part again into socio-economic life Risks and assumptions The main risk is the political instability in Lebanon and the situation in the neighbouring countries and the whole region. A continuing interest of the donor community is necessary to ensure that Lebanon will reach its objectives in terms of mine action. The activation of the interministerial committee and the reactivation of the International Support Group (ISG) a coordination mechanism of donors active in the demining sector in Lebanon should contribute to mitigate the risks. The inter-ministerial committee should give the political direction and impetus to Mine Action whereas the ISG, a platform of donors that has not been convened since 2008, should provide a framework to discuss and give a new dynamic to the international support using the momentum created by the Second Meeting of States Parties to the Convention on Cluster Munitions" Crosscutting Issues Demining activities have a direct positive impact on environment and land use in the affected zones. Environmental consideration will be fully integrated into the demining operations. Gender is taken into consideration as women are either integrated into demining teams or form specific teams Stakeholders The Lebanon Mine Action Centre, the main Beneficiary of this programme together with the Lebanese communities affected by the mine risk, is the official body in charge of all humanitarian mine action aspects including landmines, unexploded ordnances (UXOs), remnants of war and cluster munitions, it ensures the strategic and operational planning, manages, co-ordinates and supervises all phases of the mine action and clearance operations throughout the Lebanese Territory. Its responsibility encompasses also MRE/MVA and advocacy/public relations functions through policies, plans and resources mobilisation. The LMAC is under the Authority of the Ministry of Defence which provides its basic planning and operational capacity designed to face a long term residual mine risk. The operational de-mining capacity specifically entrusted to it varies between 4 and 8 de-mining teams, dog teams and machines. In order to ensure all mine action related activities, the LMAC has a staff of 12 officers to fulfil its mission, plus support staff. Currently, the LMAC has to supervise a clearance capacity of 58 teams, technical and non-technical surveys, to co-ordinate MRE/MVA and provide any other support required in the field of humanitarian mine action, which requires adequate capacities. LMAC supervises mine clearance activities and surveys undertaken by international and national NGOs/companies as well as the programmes of MVA and MRE, it benefits also from UNDP assistance in terms of capacity building. EN 14 EN

15 4. IMPLEMENTATION ISSUES 4.1. Method of implementation The project will be implemented through direct centralised management (Mine Clearance and Mine Risk Education (MRE)/Mine Victim Assistance (MVA) components) and joint management (Institutional Support component) through the signature of an agreement with an international organisation, the United Nations Development Programme (UNDP), in accordance with Article 53d of the Financial Regulation. UNDP has been providing technical assistance to LMAC since 2000 and is in charge of co-ordination of the external aid. This Agreement will define the project steering body to ensure involvement of all stakeholders. Funds from EU Member States, such as Belgium and Italy are also channelled through UNDP. The international organisation complies with the criteria provided for in the applicable Financial Regulation. A Standard Contribution Agreement will be concluded, in accordance with the Financial and Administrative Framework Agreement (FAFA) concluded between the European Community (now Union) and the United Nations on 29 April For mine clearance and MRE/MVA, the option selected with the Beneficiary has been to continue through grants contract given the specificities of mine action and the existing long standing co-operation between the Lebanese Army and NGOs (both national and international) who have gone through the accreditation process required by the International Mine Action Standards. Audit and evaluation activities will be implemented through procurement under direct decentralised management (service contracts). The change of management mode constitutes a substantial change except where the Commission "re-centralises" or reduces the level of tasks previously delegated to the beneficiary country, international organisation or delegatee body under, respectively, decentralised, joint or indirect centralised management Procurement and grant award procedures Components "Mine Clearance" and "MRE/MVA" Centralised management 1) Contracts All contracts implementing the action must be awarded and implemented in accordance with the procedures and standard documents laid down and published by the Commission for the implementation of external operations, in force at the time of the launch of the procedure in question. Participation in the award of contracts for the present action shall be open to all natural and legal persons covered by ENPI Regulation. Further extensions of this participation to other natural or legal persons by the concerned authorising officer shall be subject to the conditions provided for in Article 21(7) ENPI. 2) Specific rules for grants EN 15 EN

16 The essential selection and award criteria for the award of grants are laid down in the Practical Guide to contract procedures for EU external actions. They are established in accordance with the principles set out in Title VI 'Grants' of the Financial Regulation applicable to the General Budget, ENPI Regulation. When derogations to these principles are applied, they shall be justified, in particular in the following cases: Financing in full (derogation to the principle of co-financing): the maximum possible rate of co-financing for grants is 80% of total eligible costs. Full financing may only be applied in the cases provided for in Article 253 of the Commission Regulation (EC, Euratom) No 2342/2002 of 23 December 2002 laying down detailed rules for the implementation of the Financial Regulation applicable to the General Budget. Derogation to the principle of non-retroactivity: a grant may be awarded for an action which has already begun only if the applicant can demonstrate the need to start the action before the grant is awarded, in accordance with Article 112 of the Financial Regulation applicable to the General Budget. Component Institutional Support Joint Management All contracts implementing the action are awarded and implemented in accordance with the procedures and standard documents laid down and published by the relevant International Organisation (UNDP) Indicative budget and calendar The total financial contribution of the EU to the projects amounts to EUR 10 million.. The operational implementation period of the programme is foreseen for 48 months from the adoption of the Financing Decision. The indicative budget breakdown is as follows: Institutional support joint management EUR 1,900,000* Grants for mine clearance direct centralised management Grants for mine risk education and mine victim assistance direct centralised management Audit and evaluation (service direct centralised management) EUR 7,600,000 EUR 440,000 EUR 60,000 *The budget of the contribution agreement comprises the necessary provision for visibility activities as detailed under 4.6. Grants will be awarded through the launch of standard procedures for calls for proposals. The call for proposal is intended to be launched during the second semester of EN 16 EN

17 4.4. Performance monitoring Progress will be monitored regularly by the EU Delegation in Lebanon and through external monitoring missions (ROM). The key indicators (internationally recognised) will be the total de-mined surfaces and the specific results indicators that will be defined in the implementing contracts. Furthermore, as indicated in the latest monitoring and evaluation mission, best practices can from now on be identified, in terms of cost efficiency and effectiveness, and included in the implementation contracts Evaluation and audit The project will be subject to mid term and final evaluations. Expenditure verifications on all grant contracts will be carried out in accordance with the provisions of the General Conditions applicable to grant contracts financed by the EU General Budget. All auditing matters related to the contribution agreement with the international organisation UNDP are governed by the Verification Clause annexed to and forming an integral part of the Financial and Administrative Agreement concluded between the European Commission and the United Nations (agreement signed on 29 April 2003). If necessary, ad hoc audits or expenditure verification assignments could be contracted by the European Commission for one or several contracts. An amount of EUR 60,000 is earmarked for audit and evaluation purposes which will be implemented through procurement under direct centralised management (service contracts) Communication and visibility The European Union will ensure that adequate communication and visibility is given by the contracting parties to the EU funding. A specific provision of EUR 10,000 is foreseen to ensure the overall visibility of the EU Mine Action Programme and will be integrated into the Contribution Agreement. EN 17 EN

18 Action Fiche for Lebanon 1. IDENTIFICATION Title/Number Education, training and employment support for the Palestine refugees in Lebanon (ENPI/2012/ ) Total cost EU contribution: EUR 15,000,000 Aid method / Method of implementation DAC-code ) joint management with UNRWA 2) direct centralised management Sector Education policy and administrative management Primary education Vocational training Higher education 2. RATIONALE 2.1. Sector context In spite of their longstanding presence in Lebanon, Palestine refugees remain excluded from key facets of social, political and economic life in the country. Poverty and unemployment have remained very high among the refugees, particularly within the camp enclaves, wherein two-thirds of them reside. 5 While some recent political developments have sent a positive signal, 6 there is little to suggest that the marginalisation of Palestine refugees in Lebanon will decrease substantially in near future. One of the most effective tools in countering the unfavourable situation of the Palestine refugees has been education and training. The 2010 EU-funded Socio- Economic Survey of Palestinian Refugees in Lebanon 5 shows that education can help refugees secure more and better jobs and escape poverty. A refugee with a vocational or university degree is more likely to be employed than one holding a Brevet (an official government examination at Grade 9) or lower. Consequently, the poverty rate drops from 73% to 60.5%, and extreme poverty is halved, when the household head has an above-primary education. Moreover, of those with a university degree, 70% work as professionals or associated professionals. Employment rates for women who attended further education are also higher. Half of women with a university degree work and 43% of those with a vocational degree do. Yet, the results from the above 5 6 Two-thirds are poor (subsisting on less than USD 6 per day) while 6.6% of these exist in extreme poverty (less than USD 2.17 per day). Only 37% of the working age population is employed. Socio- Economic Survey of Palestinian Refugees in Lebanon, American University of Beirut, 2010 ( ). The positive developments include the establishment of a Lebanese-Palestinian Dialogue Committee, the amendments to Article 59 of the Labour Law facilitating the access of Palestinians to unsyndicated jobs, and the commitment to improve the social rights of the Palestinians in the Ministerial Statement of Mikati's government. EN 18 EN

19 Socio-Economic Survey also show that 8% of those between 7 and 15 years old were not at school in 2010 and only half of Palestinian refugees of secondary school age were enrolled. Two-thirds of Palestinians above the age of 15 do not have a Brevet. 7 In the absence of Palestine refugees' access to the Lebanese public education services, formal education at the primary and secondary level, as well as some vocational training, have been provided by the United Nations Relief and Works Agency (UNRWA). In Lebanon, the Agency runs 68 elementary schools (3 of them are French speaking schools and a fourth one, newly reconstructed in Nahr-el Bared has classes in French), nine secondary schools and one vocational training Institute with two centres, one in the north and one in the south of the country. Since 2005, UNRWA has also run an EU-funded university scholarship scheme. In addition, some 50 civil society organisations deliver complementary non-formal education programmes for refugees. While this system offers good access to education, there is an acute need to improve the quality of education and prevent repetition and dropout. In the area of vocational training, there is a further need to improve the external efficiency. This in the first place requires the official recognition of the UNRWA diplomas by the Lebanese Ministry of Education and an improved responsiveness of the course-offer to the needs of the labour market. Indeed, the links between vocational training and the labour market must be strengthened by direct and efficient interaction with companies. At the level of higher education, access remains the main obstacle for the Palestinian students. The only public university in Lebanon applies restrictions on the admission of Palestinians, while the tuition fees in the private universities are prohibitively high. As result, only 6% of the Palestinian labour force, as compared to 20% of the Lebanese, has university training. Regarding career guidance and employment services, young Palestinian refugees have practically no access to either. They are excluded from the Lebanese employment services, while UNRWA has acknowledged the importance of such support only recently by establishing the Placement and Career Guidance Unit (PCGU) and two Employment Services Centres (ESCs). However, the functioning of this support structure is still fragile and limited both in scope and capacity. Equally, the career guidance provision is at an embryonic stage within UNRWA, with occasional and fragmented support given in schools. The programme is coherent with the priorities set down in the Joint Communications of the European Commission and of the High Representative of the EU for Foreign Affairs and Security Policy entitled "A partnership for democracy and shared prosperity with the Southern Mediterranean" 8 and "A new response to a changing Neighbourhood" The Socio-Economic Survey of Palestinian Refugees in Lebanon, AUB, COM(2011)200 of COM(2011)303 of EN 19 EN

20 2.2. Lessons learnt The proposed action builds directly on two previous EU-funded projects: Improve Education of Young Palestine Refugees (EUR 15 million) and the Scholarship Fund (EUR 8.4 million). As attested by monitoring and evaluation reports, both these projects have been very relevant and brought substantial tangible results (e.g. end of double shifting, improved learning support, standardisation of kindergarten curriculum, development of new elementary cycle teacher methodology, introduction of school management system and provision of 340 university scholarships). At the same time, it is clear that improving the quality of education is a long-term process and further effort is needed, mainly in the areas of learning support, teacher training, and quality of learning materials. While UNRWA must remain our main partner, the complementarities of the non-formal education services provided by the strong civil society should also be supported. In addition, the link to employment should be strengthened, be it by a more appropriate course offer or effective career guidance and employment services Complementary actions The proposed programme is complementary to: The UNRWA Education Programme financed from the UNRWA General Fund (the allocation for Lebanon was USD 36.1 million in 2010). The UNRWA Education Reform Plan (launched in October 2011) focused on: 1) Teacher Development and School Empowerment, 2) Inclusive Education, 3) Technical and Vocational Education and Training (TVET), 4) Curriculum and Quality Learning, 5) Research and Educational Management Information Systems, 6) Advocacy, Communication, Partnerships and Information and Communication Technologies (ICT). EU-funded projects currently under implementation: Improve education of young palestine refugees (UNRWA, EUR 15 million). Scholarship fund for Palestine refugees (UNRWA, total EUR 8.4 million). Improving access to employment and social protection (International Labour Organisation, EUR 0.3 million). European Training Foundation (ETF) technical assistance in developing the UNRWA career guidance programme. EU policy work in the ENPI framework: discussions on legal and institutional discrimination against the Palestine refugees with the Lebanese government, particular attention given to the right to work, right to social security, recognition of non-id refugees, and freedom of movement. EN 20 EN