Executive Summary Lebanese citizens are bound socially, economically, politically and personally to a sectarian system that perpetuates itself in continuous cycles of violence and subjugation. In its preamble, the Lebanese Constitution states that “Lebanon is a democratic, parliamentary republic founded on respect for public liberties, the foremost of which are freedom of opinion and belief, and on social justice and equality in rights and in duties for all citizens without discrimination or distinction.” Yet existing government policies and practices do not reflect the principles of justice, fairness, and equality. Civil society organizations (CSOs) play an essential role in promoting citizenship and democratic values, and should deploy efforts to free citizens from the binds of religious sects as a first step to eradicating confessionalism and reducing sectarian tensions. With the 2013 parliamentary elections approaching, there is a golden opportunity for civil society to pressure Members of Parliament (MPs) for electoral law reform and better political representation. Advocates of a civil status law also have an opportunity to capitalize on a 2009 Ministerial Decree that allows citizens to remove reference to their sect in personal records. Moreover, civil society should strengthen its demands for citizenship education and a unified history book, especially since the Ministry of Education is currently in the process of reforming civic education in public schools. This brief proposes three mutually reinforcing policy areas promoting a non-confessional proportional electoral system, a civil status law, and a civic education curriculum. In light of the above, this policy proposal aspires to:  Ensure free, fair, and non-sectarian political representation that promotes citizen rights;  Reshape citizen-state relationships through civil status reform; and  Promote citizenship values and social cohesion through education reform and adoption of a unified history book. These interrelated steps will help overcome sectarian tensions and advance efforts to replace the confessional system with a just, democratic, and civic system. Adoption and implementation of these policies requires a long-term process that involves new, innovative strategies at the local and national levels aimed at linking the suggested reforms to the legitimacy and stability of the Lebanese democratic system. CSOs and non-governmental organizations (NGOs) should work on multiple fronts to raise awareness of these issues, pilot actions with a maximum number of citizens, and support government in implementing reforms.

1. Towards Eradicating Confessional Tensions
POLICY BRIEF

2. EXECUTIVE SUMMARY
Lebanese citizens are bound currently in the process of reforming
socially, economically, politically civic education in public schools.
and personally to a sectarian system
that perpetuates itself in continuous This brief proposes three mutually
cycles of violence and subjugation. reinforcing policy areas promoting
In its preamble, the Lebanese a nonconfessional proportional
Constitution states that “Lebanon is electoral system, a civil status law,
a democratic, parliamentary republic and a civic education curriculum.
founded on respect for public
In light of the above, this policy
liberties, the foremost of which are
proposal aspires to:
freedom of opinion and belief, and on
social justice and equality in rights Ensure free, fair, and non-sectarian
and in duties for all citizens without political representation that
discrimination or distinction.” promotes citizen rights;
Reshape citizen-state relationships
Yet existing government policies and
through civil status reform;
practices do not reflect the principles
of justice, fairness, and equality. Civil Promote citizenship values and
society organizations (CSOs) play an social cohesion through education
essential role in promoting citizenship reform and adoption of a unified
and democratic values, and should history book.
deploy efforts to free citizens from the These interrelated steps will help
binds of religious sects as a first step overcome sectarian tensions and
to eradicating confessionalism and advance efforts to replace the
reducing sectarian tensions. confessional system with a just,
democratic, and civic system.
With the 2013 parliamentary
elections approaching, there is a Adoption and implementation of
golden opportunity for civil society these policies requires a long-term
to pressure Members of Parliament process that involves new, innovative
(MPs) for electoral law reform strategies at the local and national
and better political representation. levels aimed at linking the suggested
Advocates of a civil status law also reforms to the legitimacy and
have an opportunity to capitalize on a stability of the Lebanese democratic
2009 Ministerial Decree that allows system. CSOs and nongovernmental
citizens to remove reference to their organizations (NGOs) should work on
This policy brief was developed by Beyond Reform & Development , part of Brd/I Group S.A.L., sect in personal records. Moreover, multiple fronts to raise awareness
in close collaboration with experts, activists and civil society organizations. civil society should strengthen its of these issues, pilot actions with a
Lebanon, 2012 demands for citizenship education maximum number of citizens, and
and a unified history book, especially support government in implementing
since the Ministry of Education is reforms.
1

3. Framing the Issue
The Problem
Lebanon’s confessional system affiliations. The problem requires
of government is a common a new mechanism to redefine the
denominator that is blamed for relationship between citizens and
violence, under-development, and the state based on their rights and
the inability of citizens to influence responsibilities rather than sectarian
political outcomes. Sectarian affiliations.
diversity is not unique to Lebanon
as the same pluralism exists in
different countries around the Situation Brief The Urgency
world. However, sectarian identities
are used to justify a discriminatory
Although the Lebanese With the upcoming parliamentary
system that remains prone to
Constitution emphasizes equality elections of 2013, the escalation
corruption, foreign intervention, and
in its preamble, state institutions of sectarian discourse, and the
continuous cycles of violence. This
and political processes remain deterioration of security and
policy brief is based on the premise
sectarian because: economic conditions, civil conflicts
that the confessional system renders
will increase. A policy to eradicate
relationships between citizens and 1. Citizen rights and benefits are
confessionalism and improve the
the state dependent on religious based on sectarian belonging.
state-citizen relationship within a
intermediaries and clientelism.
2. Citizen-state relationships, free, just civil state is the only way
including personal status, are out of a vicious cycle of recurring
Once depicted as a peaceful
governed by sectarian rather than conflicts.
means to resolve sectarian conflict,
civil laws.
confessional power-sharing has
become institutionalized in an 3. The judicial system is ineffective
ineffective governance system that and manipulated by confessional ”
leads to perpetual tensions and interests. Only when individuals
political deadlock. Manifesting become real citizens in
4. Political parties are sectarian-
itself in all aspects of government Lebanon can we plan and
based and do not compete on
institutions, political culture, and start a systematic and
national policies and issue-based
the economy, confessionalism has structural change process.
blocked attempts at reforming
platforms.
5. The education system does not
”
Lebanon’s democracy towards Dr. Paul Salem,
foster citizenship values and social Director of the Carnegie
justice, inclusion, and effectiveness. Middle East Center.
cohesion.
What is needed is a rights-based 6. The electoral system is based
approach through which all citizens on allocation of seats by confession
are treated equally within the rule and does not allow for free and fair
of law regardless of their religious representation.
2 3

4. Looking at Existing Policies, Laws
and Practices
Confessionalism dominates the political discourse and citizens’ consciousness.
Yet concrete measures to eradicate it and improve governance have been
1 Social Cohesion
suboptimal. This section presents existing policies, laws, and practices, and
2 Free & Fair Representation
their shortcomings. In assessing the current legal framework, we used four
key indicators that are essential for any policy option aimed at eradicating
confessionalism and reducing sectarian tensions: 3 Justice & the Rule of Law
1. promote social cohesion 4 Civil & Political Rights
2. ensure free and fair representation
3. promote justice and the rule of law
4. protect civil and political rights Policy
Law Assessment
Practice
ing & religious courts
> When it comes to rights associated with birth, marriage, death,
to sectarian belong-
Civil status laws tied
Policy inheritance, political freedoms, and civic participation, citizens
Law Assessment must belong to a sect to be recognized by the state.
Practice > Religious courts, funded by the government, control civil status
matters based on each citizen’s confessional affiliation.
> The existing electoral system does not respect Article 24 of the
divided per recognized sects
> The existing civil status laws frame citizens’ relationships with the
Constitution, which calls for an electoral law that does not follow
Majoritarian electoral
system based on seats
state through their sects.
sectarian distribution of power.
> The electoral law falls short of the democratic standards called
for by civil society due to the absence of an independent elections > There is no specific law to regulate political parties in Lebanon.
Regulating political
commission, pre-printed ballots, women’s quota, lowering of the These groups fall under the 1909 Ottoman Law of Association that
voting age, voting by the diaspora, and a proper framework for guarantees freedom of association.
parties
campaign finance and media regulations. > Political parties are sectarian-based and have no incentive but to
> The majoritarian system does not fulfill true representation as represent sectarian interests.
districts are defined based on sectarian majorities.
> Political parties supply social services to their constituents
directly or through the public institutions they control.
> The judicial system lacks autonomy, from the appointment of
dependent on other
judges to legal proceedings and outcomes. > The existing curriculum, teaching methods, and teachers’
Civic education in
Judicial system
state powers
> A lack of human and technical capacity in the justice sector leads capacities leave students with weak citizenship education.
schools
to inefficiency in establishing the rule of law. > There is no unified history book to provide collective memory,
> The legislative framework required to ensure social and economic foster social cohesion, and value diversity.
justice is based on outdated texts that do not respond to citizens’
> Private schools, predominantly sectarian-based, are of better
current needs and priorities.
quality than public schools and attract more students.
4 5

5. Considering Policy Options “ Sectarianism is not a result of religiosity, but is rather used for
political ends.
The following table describes policy options for reducing sectarianism based on ” Dr. Randa Antoun,
Associate Professor at
thorough research and participatory consultations with stakeholders around the the American University of Beirut
country. Each policy is based on different assumptions, has a specific objective
and strategies, and offers both advantages and disadvantages.
Policy Assumptions Objectives Strategies Advantages Disadvantages Experts’ Take Policy
options options
1 > A free and fair > Reform the existing > Build a critical > Improves > Requires a large and “The electoral law is 1
Electoral Law
Electoral Law
proportional, non- electoral law to adhere mass that calls for a representation based on organized critical mass a fundamental pillar
Reform
Reform
of the democratic
sectarian electoral system with international new electoral law as a issue-based platforms of reform-minded actors system.”
guarantees agenda- standards and respect the means to develop the rather than sects, and to achieve change. Amin Wehbeh, Member
based representation and Constitution in eliminating country and prevent enables a new generation of Parliament
enables accountability. sectarian division of seats. civil strife. of political leadership.
2 > Schools and > Reform the civic > Develop and advocate > Builds on previous > Low capacity in “We need to develop 2
Civic Education
Civic Education
universities can promote education curriculum, for a civic curriculum efforts and precedents schools and universities an educational system
that promotes belong-
Reform
Reform
social cohesion and adopt a unified history and a history book, adopted by civil society to implement a new ing to country and
enable civic participation book, and enable teachers and provide technical and some private schools. curriculum. citizenship values.”
based on citizen rights to deliver the new assistance to Dr. Arda Ekmekji, Dean of
and duties. curriculum. incorporate it into the the Faculty of Arts and Sci-
education system. ences at Haigazian University
3 > Freeing citizens from > Ensure passage of > Persuade cross- > Decreases the > Religious and "Civil society can bene- 3
Civil Status Law
Civil Status Law
sectarian status laws an optional civil status sectoral civil society influence of religions sectarian leaders are fit today from regional
events and uprisings
will combat clientelism law by Parliament and and political groups to courts and encourages powerful opponents of to push for a fair civil
and reframe a direct enforce implementation promote civil marriage inter-communal this policy option. status law.”
relationship between mechanisms. as a basic freedom. marriages and Dr. Paul Salem, Director of
citizens and the state. acceptance. the Carnegie Middle East
Center
4 > Issue-based political > Set standards for > Develop a law > Exposes the > Existing political “Sectarianism was 4
Political Parties
Political Parties
competition and internal political party governance proposal and lobby for it shortcomings of existing parties are resistant to built into Lebanese
society and politics,
party transparency lead to and funding, and create as a means for political political parties and change. and can be unbuilt. It
Law
Law
enhanced responsiveness monitoring mechanisms reform, and establish a invites new party is not innate to us.”
to citizen needs and to enhance performance. monitoring mechanism structures as model Dr. Tamirace Fakhoury,
priorities. for party funding. representatives. Professor at the Lebanese
American University
5 > An efficient justice > Reform the judicial > Adopt a governance > Reestablishes citizens’ > High resistance to “Our judiciary system 5
system protects citizen system to ensure its model for the judicial trust in the judicial change and low capacity should be strong and
Judicial
Judicial
Reform
Reform
protected from exter-
rights, ensures equity, autonomy and efficiency. system that ensures system and the rule of in judicial bodies. nal influence.”
and fosters the rule of law. autonomy, transparency, law as an alternative to Sleiman Takieddine, Lawyer
and efficiency. sectarian clientelism. and Legal Expert
6 7

6. Recommending Policy
Reshaping the Citizen-State Relationship
The Ta’if Accord that ended the Lebanese civil war states in its preamble:
“The abolition of political sectarianism is a national priority.” Due to its “ Sectarianism was built into Lebanese society and politics, and can be
unbuilt. It is not innate to us.
entrenched and complex nature, eradicating sectarianism requires a
multidimensional approach. The sectarian system manifests itself both on a ” Dr. Tamirace Fakhoury,
Professor at LAU
personal and collective level, as well as on national and local level.
While all of the five proposed options mentioned above would create a solid
foundation for replacing the confessional system with a civic and just democrat-
ic system, this policy brief recommends an approach focused on the first three
policy options—electoral law reform, civic education reform, and civil status
law—as the most urgent and actionable by CSOs, NGOs, and community-based
organizations (CBOs). This three-pronged approach focuses on reshaping the
citizen-state relationship through measures aimed at empowering citizens at
the political, personal and cultural levels:
Pillar Pillar
Reform the electoral law to ensure Promote a new civil status law that On the long run, it is important These options, in addition to the
free, fair, and non-sectarian reshapes citizens’ relationship with to complement these efforts to implementation of some elements
representation that promotes citizen the state independent of religious reshape citizen-state relationship of the Lebanese Constitution, such
rights. This will allow citizens intermediaries. This will help to by working on:current situation as Article 22 related to the creation
to elect their representatives free citizens from the influence and presents three key challenges: of a Senate and Article 95 related to
based on platforms and ensure a clientelism imposed by confessional establishing a national commission
proportional, non-sectarian electoral leaders, political groups, and Designing and implementing new to eradicate sectarianism—all of
system, opening the door for a new religious institutions. standards for Political Parties which will require political will at
generation of political leadership governance, the highest levels, would help create
free from sectarian boundaries. an overall enabling environment to
Reforming the judiciary to ensure reduce sectarianism.
Pillar autonomy, transparency and
Improve civic education by efficiency.
introducing a citizenship curriculum
and a unified history book that
promote citizenship values, social
cohesion, a culture of tolerance,
and collective memory, replacing
sectarian subjugation and
polarization.
8 9

7. The Way Forward
Pillar
Reform the Electoral Law
As this policy brief is being written, Civil society groups are Launch simultaneous campaigns Empower candidates representing
the electoral law is being debated demanding participation in the that break down the demands for civil society’s agenda to run for
within parliamentary committees parliamentary committee discussions, reform among different stakeholder parliamentary seats, such as
and among political parties. The but are being revoked by political groups. Using coordinated actions, through the “Take Back Parliament
next step will be to place the law on blocs within Parliament. these groups should seek to link Campaign” (www.vote2013.org), and
the agenda of Parliament’s General each of the reforms to citizens’ seek to form new blocs committed
Assembly for a vote. The current There is no indication that right for better representation and to reforming the electoral system
situation presents five challenges: proportional representation will publicize flaws in the electoral and eradicating sectarianism from
pass in a way that allows candidates process and gather citizen support to within Parliament.
Parliamentary committee and voters to be represented outside continue advocating for reforms.
discussions on the electoral law do the confines of sectarian groups.
not present a real opportunity for
reforming key articles that would
enhance political representation
as they are focused on districting The Civil Campaign for Electoral
and maintaining the status quo of Reform (CCER), a national civil
power distribution among the main society coalition spearheaded by the
sectarian groups in the country. Lebanese Association for Democratic Past Proposals & Reform Efforts
Elections (LADE), has been pushing
The timeframe between for electoral reform since it was
concluding parliamentary committee launched in 2006, with mixed results.
> The National Commission for the Reform of the Electoral Law developed,
discussions, placing the law on the As the parliamentary elections of
in 2006, a law proposal based on proportional representation with large
agenda of the General Assembly, and 2013 approach, CSOs and NGOs
districts that calls for key reforms in line with international standards such
voting on it might not allow sufficient must make strategic choices that
as creation of an independent elections commission, use of pre-printed
time for civil society to influence the include one or all of the following:
ballots, lowering of the voting age, establishing a women’s quota, and
process or the outcome.
enabling diaspora Lebanese to vote.
Any reform will require a Join CCER and actively lobby from
> CCER launched a campaign, in 2006, to advocate for the above reforms.
substantial number of executive within Parliament while monitoring
decrees and follow-up decisions discussions on the proposed reforms
that may distort implementation so that key articles to improve the > In 2005, the Cabinet formed the National Commission for Electoral Law,
of the reforms (similar to the out- process and enhance representation chaired by former minister Fouad Boutros, which developed a mixed
of-country-voting reform that was are not removed or diluted by electoral law proposal combining proportional representation with the
enacted in 2008 but not implemented the parliamentary committees or majoritarian system.
during the 2009 parliamentary elections). General Assembly.
10 11

8. The Way Forward
Pillar
Promote a New Civil Status
Law
The current legal framework binds In recent years, several NGOs Launch a local and national- join calls for reforming the electoral
citizens to their sectarian identities including CHAML (Non-Sectarian, level campaign calling for citizens to system so that non-sectarian citizens
and does not allow for a direct Non-Violent Young Lebanese Citizens), remove reference to their sect from can also be represented in state
relationship with the state based on Tayyar Al-Mujtamah Al-Madani, personal records. Such a campaign institution.
citizen rights and responsibilities. Nahwa Al-Muwatiniya, and the should aim at reaching a critical
This issue has been on the agenda of Civil Center for National Initiative, mass of people who do not have a
civil society for decades, but there was alongside lawyers and intellectuals, sectarian identity in their personal
no mechanism to promote civil status have been promoting civil marriage records, creating the need for civic
reform until a Ministerial Decree was and a new civil status law. With the laws to govern their personal and
issued in 2009 allowing citizens to lead-up to the next parliamentary political rights. This group could then
remove their sect from their personal elections, civil society can play an
records. The current situation important role in pushing for a
regarding civil status laws presents serious national dialogue on these
the following challenges for civil issues through one or more of the
society to consider in the next phase: following approaches: Past Proposals & Reform Efforts
The influence of religious Join CHAML’s advocacy campaign
leaders and institutions has been a to mobilize public support and > The first draft law on civil status was prepared in 1971 by legal experts
tremendous obstacle in enabling any pressure Parliament to discuss the and advocates Abdullah Lahoud, Norma Melhem, and Joseph Moghaizel,
government to enact civil marriage draft civil status law presented in and was adopted by the Democratic Party.
laws or to reduce the role of religious 2011.
courts in settling personal status > In 1996, former Lebanese President Elias Hrawi proposed an optional
issues. civil status law.
Launch a new campaign that
collaborates with religious leaders
> In 1997, the Syrian Socialist Nationalist Party (SSNP) also proposed a
There is no consensus among to arrive at a compromise for an
draft civil status law to Parliament.
civic activists as to whether a optional civil status law to ease fears
secular civil status law should from abolishing sectarianism while
be compulsory or optional, which allowing citizens to choose not to > In 2007, the Civil Center for National Initiative in collaboration with
undermines civil society’s ability be represented by their sectarian Nahwa Al-Muwatiniya and Tayyar Al-Mujtamah Al-Madani, launched
to mobilize citizens for change. identities alone. a campaign to mobilize citizens to remove reference to their sectarian
affiliation from the civil registers which led to the issuance of a
decree in 2009 by former Interior Minister Ziyad Baroud declaring it a
constitutional right.
12 13

9. The Way Forward
Pillar Past Proposals & Reform Efforts
Improve Civic Education
Lebanon’s educational system is an Several NGOs, including Tayyar Al-
> In 2007, the Ministry of Education developed a strategy that includes
extension of sectarian politics and Mujtamah Al-Madani, Nahwa Al-
a main contributor to confessional Muwatiniya, and the Lebanese Center reforming civic education, which was approved by the Cabinet in May
tensions. Schools and universities for Civic Education (LCCE), have been 2010.
are a common site for recruiting working on civic education programs.
> In 2009, Nahwa Al-Muwatiniya launched “Daleel”, an active citizenship
youth into sectarian political parties Civil society can build on these efforts
as well as a key indicator of the by forging alliances with parents’ curriculum that was adopted by some private universities.
schisms that exist in Lebanese committees, teachers, civil servants
> As part of the 2009 Human Development Report titled “Towards a
society. The Ministry of Education, at the Ministry of the Education, and
with support from the European the business sector to adopt one or Citizen’s State”, the United Nations Development Program (UNDP)
Union, is currently developing a civic more of the following approaches: developed a comprehensive study on civic education in schools.
education curriculum that presents >
civil society with an opportunity to Launch a campaign to monitor In 2010, a ministerial committee was formed, including civil society
influence national discourse on this the current debate within the representatives, to develop a comprehensive reform plan for civic
issue. The current situation presents Ministry of Education, participate in education.
civic actors with the following the discussions, and publicize the
deliberations to the public. > In 2010, a committee was assigned by the Ministry of Education to study
challenges:
the first draft of the Lebanese history curriculum, which was developed
Any proposal for integrating a new Launch a nationwide campaign to by a group of historians.
curriculum in the public education propose criteria for a civic education
system requires the involvement program that responds to citizens’ > In 2012, the Ministry of Education received funding to reform civic
of the Ministry of Education and expectations and helps enhance the education.
Cabinet’s approval. quality of public education.
The weak capacities of public
schools and Lebanese universities, Form a committee of experts
both in terms of human resources and practitioners to offer technical
and infrastructure, make it difficult to assistance and build the capacity
develop new curricula and modernize of teachers and professors to
teaching methodologies. implement a new civic education
curriculum that includes citizenship
The absence of consensus on the education and a unified history book.
events, dates, and interpretation
of Lebanon’s contemporary history Launch an initiative to document
hinders the adoption of a unified and present a new history book
history book. The debate on this issue that is impartial but offers students
has been dominated by the fears an accurate description of events,
and polarization fueled by sectarian allowing them to form their own
leaders. analysis and personal judgments.
14 15

10. Future Action
SHORT TO MEDIUM TERM LONG TERM
National Level Local Level National Level Local Level
Outcome
Expected
Reform the Electoral Law
Parliament passes important reforms, such as lowering of the voting age,
Outcome
Expected
Reform the Electoral Law
diaspora voting, use of pre-printed ballots, and creation of an independent Parliament adopts a new proportional, non-sectarian electoral system
elections commission
Empower existing NGO coalitions, Link proportional representation Focus the civil society coalition’s
Build t h e capacity of local
civic movements, and social media to local needs and development campaign to putting pressure on
Strategy
stakeholders to put pressure on
Strategy
activists to monitor and publicize priorities, while nominating new the Cabinet to issue decrees and
entities at the governorate, district,
parliamentary committee discussions candidates independent of existing monitor government institutions’
and municipal levels to publish
and General Assembly voting on the sectarian parties to run for compliance with the laws passed
information as per the passed laws.
proposed reforms parliamentary seats by Parliament
Outcome
Expected
A comprehensive civil status law is passed by Parliament and citizens’
Outcome
Expected
Civil marriage is on the agenda of Parliament and the Cabinet, and linked to the
Promote a New Civil
relationship with state institutions is not bound by a sectarian legal
Promote a New Civil
basic rights of citizens
framework
Status Law
Status Law
Create a national coalition Nominate individuals interested in
Enable a critical mass of citizens
Build a network of progressive representing different sectors, serving on a National Committee to
Strategy
to remove reference to sect in
Strategy
“mukhtars” willing to assist senior officials, and reputable Eradicate Sectarianism and begin
their personal records, and ally
citizens in removing reference to judges to call for a civil status law lobbying for separating religious
with couples doing inter-religious
their sect in personal records and lobby for it with all political affairs from state institutions and
marriages
groups courts
Outcome
Expected
Outcome
Expected
Public schools and Lebanese universities adopt an active citizenship
A number of private schools and universities adopt a new civic education
curriculum and a unified history book that enhances social cohesion, values
Improve Civic Education
Improve Civic Education
curriculum and start implementing it for secondary-level classes
diversity, and promotes a sense of civic responsibility
Partner with municipalities, CSOs,
Lobby MPs to support and adopt
NGOs, and CBOs to provide active Launch a national initiative
Develop civic education guidelines, the new civic education curriculum
citizenship programs to youth led by capable teachers and
Strategy
Strategy
monitor the Ministry of Education and unified history book by linking
groups in several villages, and civil servants calling for a new
reform process, and pressure for these demands to local development,
document success stories/case civic education curriculum that
adoption of these guidelines social cohesion, and stability at the
studies to support implementation includes a unified history book
community level
of the civic education guidelines
16 17

11. Illustrative Activities
During the last decade, several initiatives have aspired to eradicate sectarianism
from the Lebanese political system. In all past attempts, religious and political “ The issue requires a new mechanism to redefine the relationship
leaders have interfered to oppose any reforms that threaten the interests of between citizens and the state, one that is based on rights and
“
sectarian elites and political parties. Most recently in 2011, and inspired by the responsibilities.
Arab uprising, a civic movement began calling for an end to the confessional
system under the slogan “the people want the fall of the sectarian regime".
Though it mobilized more than 20,000 people in one of its demonstrations, the
movement could not sustain itself due to political, organizational, leadership, and
resources challenges, as well as lack of a clear agenda. Despite the failure of past
attempts, there is consensus among civil society around the need to maintain the
pressure on government to adopt meaningful reforms aimed at chipping away at
the confessional system, especially as the 2013 elections, a window of opportunity
for change, are drawing nearer and citizens’ readiness to act is increasing.
The following are suggestions for illustrative activities based on expert roundtables,
interviews, and focus groups, which can be adopted by CSOs, NGOs, and CBOs to
press forward towards a just, democratic civic state.
Illustrative Activities at the with the Education Center for Research
Illustrative Activities at the Organize local campaigns to motivate
and Development, an autonomous citizens to remove reference to
National Level: entity under the trusteeship of the Local Level: sectarian affiliation from their
Organize a mass campaign advocating Ministry of Education, to reform the personal records.
civic education curriculum. Engage local constituents in lobbying
for electoral reform ahead of the next their MPs to support a new electoral Partner with inter-sectarian married
elections. Use alternative media to influence law. couples and enable them to advocate
Nominate election candidates who voters by showcasing the negative for a civil marriage law.
Participate in elections monitoring
represent non-sectarian interests and effects of the sectarian system on Develop informal civic education
and highlight the negative impact of
agendas. the economy, civil peace, and the programs and deliver them in local
the existing electoral law on sectarian
education system.. schools; then document and share
Launch a national campaign tensions.
Expose the unmet needs of citizens in the experience with the Ministry of
mobilizing citizens to remove any Follow up with the Constitutional
areas such as employment, health, and Education.
reference to sectarian affiliation from Council and Prosecutor General
their personal records electricity services as direct results on cases of vote-buying by political Conduct citizenship programs in rural
of sectarian representation and the parties and sectarian leaders. areas that are strongholds of sectarian
Advocate for a new civil status law. absence of national development leaders.
Discredit MPs who enter Parliament
Develop programs and materials agendas. Conduct community-level dialogue
as part of a sectarian agenda.
compiling cases and tools for active Promote and publicize cross- Nominate local leaders to lead a sessions that foster collective memory
citizenship education and propose confessional dialogue and interactions national campaign calling for the and encourage reconciliation.
them to the Ministry of Education. aimed at reconciliation and establishment of a Senate and making
Monitor the reform project undertaken overcoming societal divisions. the state impartial to sectarian
by the Ministry of Education and engage interests and influence.
18 19

12. Engaging with Different Partial List of References
Stakeholders
“As-Safir wa MADMA: Thiltha al-Lubnaniyein Yarfoudoun al-Fikra” (“Two-Thirds of the
The suggested policy option must be endorsed by key stakeholders and policy- Lebanese Reject the Idea”). (1998). Ma‘loumat, No. 32: 75-8.
makers to be implemented. The influence that the various stakeholders yield Draft Electoral Law for 2013 (2006). Civil Campaign for Electoral Reform. Retrieved from:
on the decision-making process will determine how they should be engaged http://www.ccerlebanon.org/pictures/manualpdf/DraftLaw+%20Maps(Low%20Res)%20(1).pdf
and the messages they should receive. Below is a list of stakeholders to be Daleel: Introduction to Active Citizenship (2008). Nahwa Al-Muwatiniya.
considered. The National Human Development Report: Towards A Citizen's State (2009). United Nations
Development Program (UNDP). Retrieved from http://hdr.undp.org/en/reports/national/arabstates/
> President of the > Political parties > Public & private schools lebanon/NHDR_Lebanon_20082009_En.pdf
Republic > Lawyers & > Public & private universities Al Habbal, J. (2011). The Institutional Dynamics of Sectarianism: Education and Personal
> Cabinet of Ministers Judges > Syndicates Status Laws in Post-War Lebanon. (Thesis for the Lebanese American University).
> Ministry of > Civil servants > Bar Association Anderson, L. (1987). The State in the Middle East and North Africa. Comparative Politics, 20: 1-18.
Education > Constitutional > Media Antoun, R., Associate Professor at the American University of Beirut (September 13, 2012).
> Municipalities Council > Voters Personal interview by N. Menhall, BRD/I.
> Ministry of Interior > Electoral > Academia & Beydoun, A. (2004). “Confessionalism: Outline of an Announced Reform.” In Options for
& Municipalitie candidates Research Institutes Lebanon, edited by Nawaf Salam, 75-96. Oxford: The Centre for Lebanese Studies.
> Judicial branch > United Nations > NGOs, CSOs & CBOs Edgar O. (1998). Civil War in Lebanon, 1975-92. Palgrave Macmillan.
agencies > Lebanese diaspora El-Khalil, A. (1988). “The Role of the South in Lebanese Politics.” In Lebanon: A History of
Conflict and Consensus, edited by Nadim Shehadi, and Dana Haffar Mills, 305-14. London: I.B. Tauris.
> Youth groups
Ekmekji, A., Dean of the Faculty of Arts and Sciences at Haigazian University (September 19,
2012). Personal interview by A. Hmayed, BRD/I.
Each of these entities requires a different strategy and approach to ally it with
Fakhoury, T., Professor at the Lebanese American University (September 25, 2012).
the suggested policy. The following table highlights the incentives for the key Personal interview by N. Menhall, BRD/I.
stakeholders to adopt or support the proposed policy. These incentives can form Frayha, N. (2004). “Developing Curriculum as a Means to Bridging National Divisions in
the basis for developing communication messages to persuade the stakeholders Lebanon.” In Education, Conflict and Social Cohesion, edited by Sobhi Tawil, and Alexandra
to take action. Harley, 159-203. Geneva: UNESCO International Bureau of Education.
Gellner. E. (1977). “Patrons and Clients.” In Patrons and Clients in Mediterranean Societies,
edited by Ernest Gellner, and John Waterbury, 1-6. London: Gerald Duckworth.
Stakeholders Incentives Hess, C., and Bodman, H. (1954). “Confessionalism and Feudality in Lebanese Politics.”
Rebuild trust and credibility by modernizing the legal, Middle East Journal 8: 10-26.
Parliamentary
Blocks & political, and education system to respond to the needs of Hottinger, A. (1966). “Zu‘ama’ in Historical Perspective.” In Politics in Lebanon, edited by
Committees youth specifically and of the general public more broadly Leonard Binder, 85-106. New York, London, and Sydney: John Wiley & Sons.
Hrawi, E. (1998). The Civil Marriage Project.
Decrease violence and confessional tensions by setting Hudson, M. (1988). “The Problem of Authoritative Power in Lebanese Politics: Why
Cabinet & strategies to ease the fears of religious groups while making Consociationalism Failed.” In Lebanon: A History of Conflict and Consensus,
Ministries state institutions impartial to the parochial interests of edited by Nadim Shehadi and Dana Haffar Mills, 225-39. London: I.B. Tauris.
sectarian groups at the expense of the public interest Institute for Democracy and Electoral Assistance, Voter Turnout Data for Lebanon
http://www.idea.int/vt/countryview.cfm?CountryCode=LB
Civil Reclaim their role, credibility, and authority to ensure respect Khalaf, S. (1977). “Changing Forms of Political Patronage in Lebanon.” In Patrons and Clients
Servants &
for the Constitution, protect civil peace, and foster social in Mediterranean Societies, edited by Ernest Gellner, and John Waterbury, 185-206. London:
Constitutional
cohesion Gerald Duckworth.
Council
Khalaf, S. (2002). Civil and Uncivil Violence in Lebanon: A History of the Internationalization
Political Parties of Communal Conflict. New York: Columbia University Press, 2002.
Reclaim their role and authority while becoming more
& Electoral Salem, P., Director of the Carnegie Middle East Center (September 20, 2012).
respected by citizens
Candidates Personal interview by N. Menhall, BRD/I.
Takydine, S., Lawyer and Legal Expert (September 25, 2012).
Become more informed on the means of eradicating Personal interview by N. Menhall, BRD/I.
NGOs, CSOs,
sectarianism and more influential in promoting a solution to
& CBOs Wehbe, A., Member of the Parliament (September 10, 2012).
existing shortcomings in the democratic process Personal interview by N. Menhall, BRD/I
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