The views and opinions expressed in this document are those of the author and do not necessarily reflect the official position of the Agence Française de Développement (AFD).

One day after the launch of “Operation Al-Aqsa Flood” on October 7, 2023, the Israeli army bombed border areas in southern Lebanon in response to Hezbollah’s decision to support the Palestinian resistance. After months of intermittent cross-border strikes between Israel and Hezbollah, marked by a stark imbalance in their scale and intensity, Israel’s aggression deepened into an all-out war on Lebanon that continued to escalate and expand from September 23 to November 27, 2024, when a ceasefire agreement between Lebanon and Israel entered into force.

Over 20,000 people were killed or injured during the 14 months of brutal Israeli aggression against Lebanon, with most casualties occurring in the two months preceding the ceasefire agreement. An estimated 1.2 million people were displaced across the country. In the governorates of South Lebanon and Nabatieh, the Israeli assault mainly targeted the area south of the Litani River, causing widespread destruction, particularly in localities near Lebanon’s southern border. In addition to the systematic destruction of residential buildings and entire neighborhoods, Israel targeted infrastructure and heritage sites and wreaked havoc on forests, agricultural lands, and irrigation networks, inflicting severe damage on trees, crops, soil, the agricultural and natural environment, and the local economy more broadly.

 
Despite the fragile security situation, thousands of displaced families rushed back to their homes in southern Lebanon as soon as the ceasefire took effect. Some defied Israeli warnings against returning to the border areas and went back to check on their homes and belongings (or their ruins), exposing themselves to the risk of death. Return was their primary goal, and it was achieved for many, albeit accompanied by sorrow and pain.

However, many people remain displaced from their homes in southern border towns, which have largely become uninhabitable. Israeli daily attacks on what it considers Hezbollah targets continue to kill civilians. According to Lebanese military sources, Israel has violated the ceasefire agreement 3,112 times since it came into force, through May 8, 2025, killing 157 people and injuring 356 others. In addition, Israel detonated explosives in 40 southern towns within the area it had warned against returning to, resulting in their complete destruction.

Covering the period between October 8, 2023, and December 20, 2024, the World Bank’s Rapid Damage and Needs Assessment (RDNA) for Lebanon, published in March 2025, estimates recovery and reconstruction needs at approximately USD 11 billion. Although it provides data on ten sectors—including housing, health, education, environment, water, and energy—as well as on macroeconomic impact and displacement patterns, the RDNA is not intended as a substitute for comprehensive sector-specific analysis and planning. It offers an overview of the scale of destruction, but does not address post-war territorial development priorities and implementation strategies.

Against this backdrop, the pressing question today concerns the challenges of recovery and reconstruction amid the multiple crises that have plagued Lebanon since late 2019, and Israel’s continued violations of the ceasefire agreement and its ongoing destruction of Lebanese border villages, keeping the door open for the return of war. Who will rebuild what Israel has destroyed? Within what timeframe? According to which plans? Who will implement these plans? Who will oversee the implementation? Where will the funding come from?

Discussing recovery and reconstruction amid uncertainty is not premature. On the contrary, it is an urgent necessity to prevent the worsening of humanitarian conditions, strengthen citizens' connection to their land, attract international support, demonstrate political will, and prepare for building a more stable and resilient future.

This article seeks to contribute to the discussion on potential pathways for the recovery and development of the south of Litani River area by presenting a synopsis of a study for its integrated territorial development, prepared between 2020 and 2023. Despite its completion, the study is yet to be published and distributed. The delay is due to several factors, including the decline in external funding, regional instability, and changing national and local priorities. Nonetheless, its recommendations remain relevant and merit consideration.    

Strategic Study Faces Headwinds
The study to prepare a strategy for the development of the south of Litani River area was initiated within the framework of the CEDRE program (Economic Conference for Development through Reforms and with Partnerships), following a request for joint support sent by the heads of the municipal unions of Tyre, Bint Jbeil, Al-Qalaa’, and Jabal Amel on April 13, 2018, to the French Development Agency (AFD). AFD responded positively to this request and launched in July 2019 a call for proposals, affirming its commitment to sustainable and balanced regional development amid crises. The primary objective of the study was to provide a strategic analysis of the development needs and priorities in the study area, including towns and villages not part of the aforementioned unions, and to identify strategic projects requiring support and funding.

The consulting team consisting of the Lebanese Center for Policy Studies (LCPS), MORES (a Lebanese consulting firm for the management of resources and environmental solutions), SETEC (a French multidisciplinary engineering company), Serge Yazigi (urban planner and cultural heritage expert), and the author of this article (strategic territorial development planner and team leader) won the technical and financial proposal competition for the study. 

In March 2020, the consulting team commenced the study in accordance with the established criteria, which include harmonizing environmental and developmental considerations, promoting sustainable growth of the rural economy, strengthening social cohesion, and engaging all key stakeholders—including heads of municipal unions, municipal representatives, active local organizations, and concerned citizens—in assessing the region’s situation and determining its development priorities.

Lebanon’s multiple crises—financial collapse, COVID-19, and Beirut port explosion—greatly impacted the study’s trajectory, necessitating adjustments to its scope and time frame. From the outset, it was clear that a dual-track approach was needed: an emergency response track alongside a strategic planning track. It also became evident that strategies for regional development should focus on feasible short-to-medium-term initiatives, as large-scale interventions requiring significant external funding and extended implementation timelines—such as the infrastructure projects that Lebanon had aimed to finance under its Capital Investment Plan presented at the CEDRE conference—were untenable given the prevailing circumstances.

Although integrated territorial development remained a priority for AFD, the political circumstances following the Beirut port explosion shifted funding priorities. This shift was also influenced by the fact that international financial institutions are experiencing a general decline in available funding for development projects worldwide, which has consequently reduced the grants available to Lebanon. These funding challenges have compounded the difficulties facing the central government and public bodies, who have had to navigate an increasingly complex environment marked by shifting priorities, limited resources, and external pressures. In particular, municipalities and unions of municipalities have been significantly affected by Lebanon's economic crisis, experiencing a decline in their revenues and a sharp reduction in their ability to provide services to local communities.

 
In addition to their structural problems and the responsibilities they have assumed in responding to the Syrian refugee crisis, the struggles of municipalities and unions of municipalities has been exacerbated by delays in receiving their outstanding funds from the Independent Municipal Fund and telecommunications revenues, which have accumulated over the past years and lost their value significantly due to the dramatic depreciation of the national currency. Despite these challenges, municipalities have had to shoulder substantial burdens in response to COVID-19, as the Municipalities Law (Legislative Decree No. 118/77 and its amendments) made local government responsible for dealing with health crises such as epidemics. 

External funding policies also played a significant role in reducing the enthusiasm of key local actors about the study, as they doubted that their prioritized projects would actually be financed. For its part, AFD made it clear from the outset that it would fund the study of the development strategy for the south of Litani River area, but would not commit to financing the proposed projects. Its position stemmed from the fact that the objective of the strategic plan was to propose development projects within a coherent and integrated framework, making it easier for municipalities and municipal unions to communicate with potential funders, including AFD, and secure support. 

Eventually, the study resulted in both an emergency response plan and comprehensive development strategy. The consulting team completed all phases of the study in close collaboration with local stakeholders, with over 100 people involved in the elaboration of these plans through intensive meetings and discussions with relevant local, regional, and national actors. These included the presidents of the four municipal unions within the study area, some mayors and/or members of municipal councils, representatives of the Al-Amal Al-Baladi Association, key employees of public sector institutions and relevant international organizations, members of active local civil society organizations and trade unions, as well as citizens and local experts with first-hand knowledge of the region's challenges and development priorities.

The Emergency Response Plan prioritized livelihoods, health, education, and the provision of basic services. It placed particular emphasis on the need for agricultural extension, public transport, support for both traditional and innovative businesses, and youth employment. The plan also included a list of ongoing projects (by international and local organizations) and potential funding opportunities that municipal unions and municipalities in the study area could benefit from. As for the strategic plan, it emerged from a shared vision and focused on four development goals and programs, as outlined in the summary below.

Summary of the Strategic Framework 
Before presenting the summary of the proposed strategic framework, it is important to note that there is no formal administrative demarcation for the area south of Litani River. Moreover, no area in Lebanon is officially recognized by this name, which AFD used in its call for proposals and is generally associated with the operation area of the United Nations Interim Force in Lebanon (UNIFIL). However, this area forms an integrated geographical entity with well-defined boundaries from all sides, except in the northeastern part, where the Litani River changes direction. 

With this in mind, the consulting team defined the study area as encompassing the entire districts of Tyre, Marjayoun, and Bint Jbeil. These districts are historically associated with the Jabal Amel region, which extended into parts of Palestine before the establishment of Greater Lebanon in 1920. The region is renowned for its resistance to Israel and resilience during key historical events, including the Israeli invasion of Lebanon in 1978 and 1982, the occupation of the south between 1982 and 2000, and the 2006 war.

On a conceptual level, the consulting team emphasized comprehensive spatial development aimed at creating synergistic links between the various administrative regions within the study area. This approach also sought to enhance and diversify the local economy, protect the environment and natural and cultural heritage, and improve infrastructure and services. Thus, the study adopted a multisectoral approach, transcending the boundaries between rural and urban areas and between the coast and the interior. It highlighted the importance of treating the study area as an integrated geographical unit, unified by its landscape features, shared history, and the cultural and social traditions of its inhabitants. 

The National Physical Master Plan for the Lebanese Territory (NPMPLT) served as a foundational reference in formulating a common vision for the area’s development and in articulating multi-scalar strategies and interventions aligned with the NPMPLT’s recommendations. In addition, the proposed strategy was guided by the Sustainable Development Goals (SDGs) and the findings from previous relevant studies, specifically the 2015 Sustainable Regional Development (SSRDP) for the Tyre District and the 2014-2015 Strategic Study for the Villages of the Federation of Municipalities of Jabal Amel.

In line with this conceptual framework, and particularly the directions of the NPMPLT, local stakeholders have adopted a strategic vision that highlights the south of Litani River area as one of Lebanon’s most productive agricultural regions, in addition to being a prominent cultural and tourist destination at the national level. Local stakeholders also embraced the strategic objectives and development axes set by the study, along with the four associated programs, which were primarily based on fieldwork and participatory workshops with local actors. The following is a summary of these programs: 

1. “Productive South” Program (الجنوب المنتج): This program focuses on agriculture and agro-industries. It aims to develop these sectors by improving irrigation systems, supporting the shift towards organic and rain-fed crops, and promoting sustainable agricultural practices (such as agroecology and agroforestry). Simultaneously, it aims to protect productive agricultural land by designating it for agricultural use, as well as to provide agricultural extension services and strengthen the traditional fishing and livestock production sectors.

2. “South Heritage” Program (تراث الجنوب): This program aims to protect the natural, cultural, religious, and maritime heritage of the study area while supporting the creation of new job opportunities in the culture and ecotourism sectors. It also seeks to raise public awareness of the value of heritage and the importance of preserving urban and historical monuments, reviving traditional crafts and light handicrafts, and positioning the region on Lebanon’s alternative tourism map.

3. “Green and Blue South” Program (الجنوب الأخضر والازرق): This program aims to conserve the region's natural resources, restore ecosystems and biodiversity, reduce pollution, and promote public health and well-being. It prioritizes improving solid waste and wastewater management, supporting business innovation in green, blue, and circular economies, and accelerating the transition towards renewable energy. Additionally, the program focuses on the need to strengthen existing green and blue environmental corridors and adopt environmentally friendly interventions in infrastructure development.  

4. “South Links” Program (روابط الجنوب): This program aims to strengthen social and physical connections in the study area through strategic interventions that facilitate people's access to public services and facilities, stimulate economic development, and promote equity and social cohesion. These interventions include improving multimodal public transport systems and soft mobility, as well as creating strategically distributed networks that include health centers, vocational education centers, open recreational spaces, and sports facilities.

The strategic plan includes details about the objectives and components of each of these four programs, as well as the opportunities and challenges that may facilitate or hinder their implementation. It also includes lists of priority projects associated with these programs, specifying their potential geographical locations, the types of interventions required, their timeframe, and the concerned and responsible authorities. 

Furthermore, the proposed strategy addresses three strategic projects in more detail. These integrated projects, located at the intersection of two or more of the four above-mentioned programs, can be implemented in several locations within the study area. They are quick to implement and do not require significant funding, changes in the region's regulations, or the enactment of new laws. These projects are:

1. “Tadweer” Project (تدوير): This project seeks to convert organic and agricultural waste into compost, organic soil cover (mulch), and pressurized briquettes.

2. “Doroob” Project (دروب): This project promotes ecotourism by creating thematic trails, such as the olive trail and the vineyard trail, which are linked to the region's identity and local traditions. 

3. “Shams & Mai” Project (شمس ومي): This project supports sustainable agricultural practices by employing a water, energy, and food nexus approach, using solar and rainwater in irrigation.

In short, the proposed strategy presents a comprehensive roadmap for achieving integrated and sustainable development in the region. However, beyond Lebanon’s current crises, several challenges hinder its effective implementation, including weak institutional coordination, overlapping responsibilities, and insufficient resources for municipalities. Shortcomings in urban planning and land governance further complicate the strategy’s implementation. 

Specifically, the absence of effective regulatory frameworks and sound management has resulted in urban sprawl, encroachment on public and communal land, and harmful changes in land use. These issues have been accompanied by a reduction in cultivated areas, water, and soil pollution, and the neglect of vital natural and heritage sites. To address these challenges, the proposed strategy emphasizes the need for strengthened regulatory frameworks, sustainable land management practices, and enhanced protection of natural and heritage sites, though the strategy itself urgently requires updating.  

Recovery and Reconstruction Priorities 
The challenges outlined above have been compounded by the ongoing Israeli aggression along Lebanon’s southern border, highlighting the need for a dual-track approach: an emergency response track and a strategic intervention track. Naturally, the emergency response track must prioritize assessing the damage caused by the aggression, clearing the affected areas from ordinance, and beginning the process of rehabilitation and reconstruction of damaged homes, thus enabling displaced residents to return and reaffirming their right to their land.

As for the strategic intervention track, there is an urgent need to thoroughly analyze emerging obstacles and risks arising from the aggression and assessing their impact on agriculture and agro-industries, natural and cultural heritage, natural resources and ecosystems, and social and physical connectivity. Based on this in-depth analysis, strategic actions to support the local economy, protect the environment, preserve heritage, and promote social cohesion amid ongoing challenges must be prioritized.

The development strategy for the development of the south of Litani River area, presented in this article, lays a solid foundation for promoting balanced development, social justice, and the preservation of the environment and natural resources. There is an urgent need to update it to reflect current priorities and redefine necessary interventions. This task requires concerted efforts of all concerned actors at all levels, with a commitment to active participation and continuous cooperation to achieve the desired goals under the current circumstances.