Country Report on Terrorism 2016 - Chapter 2 - Lebanon

Overview: Lebanon was a committed partner in the counter-ISIS fight during 2016, and its ground forces represented one of the most effective counterterrorism forces in the region. U.S. forces partnered closely with Lebanon’s full defense and law enforcement security apparatus as Lebanon continued to face significant internal and external terrorist threats in 2016, and a number of terrorist attacks occurred throughout the year. Lebanon also faced threats from unconventional attacks against the Lebanese Armed Forces (LAF) and other security services from both ISIS and al-Nusrah Front (al-Qa’ida’s affiliate in Syria) terrorists, who operated along the porous, un-demarcated eastern border with Syria. The continued presence of these Syria‑origin Sunni extremists in Lebanese territory underscored that border security is central to maintaining Lebanon’s stability and the importance of enabling the Lebanese government to exercise its full sovereignty, as mandated by UN Security Council resolution (UNSCR) 1701.

Hizballah, with considerable support from Iran, remained the most capable terrorist group in Lebanon. The group was a powerful political actor and enjoyed popular support among Lebanese Shia and a degree of political support from some allied Christians. Hizballah justified its stockpile of arms for its “resistance” to Israel, and increasingly to protect Lebanon from extremist Sunni groups, including ISIS. Hizballah also continued its military role in Syria in support of the Bashar al-Assad regime and proved to be a critical force in supporting the regime. Iran’s Islamic Revolutionary Guard Corps has had a presence in Lebanon since the early 1980s and reportedly coordinated closely with Hizballah on military operations and training.

Despite the lack of a fully operational central government for much of the year due to Lebanon’s presidential vacancy, various institutions of the Lebanese state, including the LAF, Internal Security Forces (ISF), Directorate of General Security (DGS), Directorate General of State Security (DGSS), and Central Bank continued to cooperate with international partners in countering terrorism and scored notable successes in the disruption of terrorist networks and in combating terrorist forces. The United States remained Lebanon’s closest counterterrorism partner; U.S. assistance focused on maintaining border security and strengthening Lebanon’s security institutions to better counter terrorist threats.

Lebanese authorities were challenged not only by the significant economic burden of hosting over one million Syrian refugees, but also by fears of potential militant recruitment and infiltration among the refugee population. ISIS and al-Nusrah Front’s exploitation of informal refugee settlements further hardened Lebanese attitudes towards Syrian refugees. Terrorists also operated out of Lebanon’s 12 Palestinian camps, particularly the largest, Ain el-Helweh.

Lebanon is a member of the Global Coalition to Defeat ISIS, and participates in all four of the Coalition’s civilian working groups. The Lebanese security forces sought to impede the flow of Sunni foreign terrorist fighters both to and from Syria by working to secure the border and by conducting counterterrorism operations. The LAF, ISF, and DGS were also actively engaged in monitoring potential ISIS and other Sunni extremist elements in Lebanon, disrupting their activities and networks, and arresting those suspected of plotting terrorist attacks. The government expanded its efforts to counter ISIS messaging, particularly through online communication and social media campaigns promoting tolerance online. In accordance with UNSCR 2178, the Lebanese government increased security measures at airports, border crossings, and ports to prevent the flow of ISIS and al-Nusrah Front fighters to Syria and Iraq; however, Lebanon lacks laws criminalizing foreign terrorist fighter activity and the government has not taken action to prevent Hizballah fighters from traveling to Syria or Iraq.

2016 Terrorist Incidents: Lebanon suffered from a number of terrorist incidents in 2016, ranging in type and alleged perpetrator. Five of the most significant events are listed below:

  • On January 8, Syrian militants affiliated with ISIS conducted a drive-by shooting at the house of an ISF Information Branch officer near the town of Aarsal. The killing was reportedly in retaliation for the officer’s undercover work against ISIS in Aarsal.
  • On April 12, unknown militants assassinated a senior Fatah official with a bomb outside Ain el-Helweh, Lebanon’s largest and most volatile Palestinian camp.
  • On June 12, a bomb exploded outside a Blom Bank location in downtown Beirut, damaging the bank’s structure, but causing no injuries. The bomb was widely considered to be a message from Hizballah to the banking sector over implementation of Central Bank circulars focused on Hizballah.
  • On June 27, a series of eight suicide bombings killed five people and wounded at least 28 others in the Christian village of al Qaa in the Bekaa valley. It is unknown who perpetrated the bombings.
  • On August 31, a bomb outside Zahle killed one person and injured several others in the Bekaa Valley. The bombing was thought to be targeting Shia participants traveling to an Ashura celebration event in Southern Lebanon.

Legislation, Law Enforcement, and Border Security: Lebanon does not have a comprehensive counterterrorism law, but several articles of Lebanon’s criminal code are used to prosecute acts of terrorism. Implementation of these articles is at times hindered by Lebanon’s complex confessional political system and also by Hizballah’s restriction of access to attack sites within areas under its control. The cabinet did not consider legislative initiatives that could potentially threaten Hizballah’s operations, as the presence of Hizballah and its political allies in the government make the requisite consensus on such actions impossible. State security agencies remained functional in countering non-Hizballah terrorism.

The LAF, ISF, DGS, and DGSS are the primary government agencies responsible for countering terrorism. Despite notable counterterrorism successes in 2016, the law enforcement capacity of these agencies was overstretched due to the magnitude of the country’s terrorism-related threats. Although cooperation among the services was inconsistent, all services have taken steps to improve information sharing and are receptive to additional training to expand capacity.

Lebanon has been a participant in the Department of State’s Antiterrorism Assistance program since 2006; this assistance has focused on border security as well as building law enforcement’s investigative and leadership capabilities. The Department of State has also provided assistance to improve the capabilities of the ISF through a multi-year program that includes construction of training facilities and establishment of a secure radio communications system; provision of vehicles, protective gear, and other types of equipment; and upgrading of Lebanon’s biometrics capabilities. The ISF has worked to prevent Sunni violent extremist recruitment and the direction of terrorist activities by prison inmates and has built a new facility at Lebanon’s main prison to house high-threat prisoners.

The LAF has primary responsibility for securing Lebanon’s borders, but worked collaboratively with other agencies to prevent the infiltration of terrorists and illicit goods. The services have increased security measures at airports, border crossings, and ports to prevent the flow of ISIS and al-Nusrah Front fighters to Syria and Iraq, with a special emphasis on detecting counterfeit passports. The DGS, under the Ministry of Interior (MOI), controls immigration and passport services, and uses an electronic database to collect biographic data for travelers at the airport; however, it does not collect biometric data at land borders. Lebanon collects and disseminates Passenger Name Records (PNR) on commercial flights, and is preparing to begin collecting advanced passenger information in 2017.

The Lebanese security services disrupted multiple terrorist networks and made several high‑profile arrests in 2016. On November 25, the army conducted a raid into Aarsal to capture a high-level ISIS figure, and conducted a similar raid on September 22, in Ain el-Helweh, to apprehend another notable ISIS figure. In July and August, more than 30 militants associated with terrorist and violent extremist groups turned themselves in from Ain el-Helweh, citing pressure from the LAF and local Palestinian groups. In addition to the arrests, the LAF also disrupted an ISIS plot to attack Western targets in and around Beirut. The LAF increasingly claimed that violent extremists used Syrian refugee settlements as cover for their activities and as places of refuge.

The United States maintains close ties with the Lebanese security services and often receives and provides support in a wide variety of cases. While the majority of these involve terrorism, bilateral cooperation has expanded to missing persons, child custody disputes, and financial crimes. There are, however, several individuals on the U.S. Federal Bureau of Investigation’s most wanted list still located in Lebanon. Lebanese authorities maintained that amnesty for Lebanese nationals involved in acts of violence during the 1975-1990 civil wars prevented terrorism prosecutions of concern to the United States.

Countering the Financing of Terrorism: Lebanon is a member of the Middle East and North Africa Financial Action Task Force, a Financial Action Task Force-style regional body. Lebanon’s financial intelligence unit, the Special Investigation Commission (SIC), is a member of the Egmont Group of Financial Intelligence Units. Lebanon also participates in the Coalition’s Counter-ISIS Finance Group. Lebanese government officials and financial leaders repeatedly met with U.S. government officials regarding the intent and implementation of actions consistent with the U.S. Hizballah International Financing Prevention Act (HIFPA) of 2015. The Central Bank of Lebanon directed Lebanese banks to fully comply with HIFPA.

Lebanon strengthened its overall efforts to disrupt and dismantle money laundering and terrorist financing activities, including those of Hizballah. In October, Lebanon’s parliament passed a new tax law strengthening Lebanon’s Anti-Money Laundering/Countering the Financing of Terrorism (AML/CFT) regime. The Central Bank issued a circular that directed Lebanese financial institutions to comply with the HIFPA. The Central Bank’s Special Investigation Committee (SIC) issued additional HIFPA-related circulars and AML/CFT controls at designated non-financial businesses and professions. The SIC also issued “freezing without delay” regulations in compliance with the UN Security Council ISIL (Da’esh) and al-Qa’ida sanctions regime.

Cooperation between the SIC and local enforcement authorities on terrorist financing cases improved, including through the training of a joint task force with representatives from Customs, the ISF, the SIC, and the judiciary. The SIC referred 29 alleged money-laundering cases to the General Prosecutor, which resulted in 12 prosecutions but no convictions. The SIC did not have figures available for 2016 regarding total cases it received of alleged terrorist financing. The ISF received 48 money laundering allegations from INTERPOL, arrested three persons, and referred five cases for investigation.

For additional information on money laundering and financial crimes, see the 2016 International Narcotics Control Strategy Report (INSCR), Volume II, Money Laundering and Financial Crimes: http://www.state.gov/j/inl/rls/nrcrpt/index.htm.

Countering Violent Extremism: Several government institutions have programs that seek to counter violent extremism, but the government does not have a national strategy in place. Civil society actors, security institution personnel, and other government actors attended an embassy‑funded three-day event focused on fighting online violent extremism. The LAF is developing a comprehensive counter-messaging strategy that amplifies moderate voices and uses television spots, social media, billboards, and SMS texts to counter violent extremist narratives.

International and Regional Cooperation: Lebanon is a member of the Organization of Islamic Cooperation and the Arab League. Lebanon continued to voice its commitment to fulfilling relevant UNSCRs, including 1559 (2004), 1680 (2006), and 1701 (2006). The Special Tribunal for Lebanon, an international body investigating the 2005 assassination of former Prime Minister Rafiq Hariri, received Lebanon’s annual contribution of approximately $32.5 million.

The LAF partnered with several nations on a bilateral basis to receive training programs that focused on strengthening its counterterrorism capabilities.