Lebanon’s ESEC seeks a bigger voice in policymaking

As Lebanon continues to grapple with economic recovery, institutional reform, and mounting social challenges, strengthening dialogue between policymakers and society has become increasingly important.

One institution designed specifically to facilitate that dialogue is the Economic, Social and Environmental Council (ESEC), an independent advisory body established to provide expert opinions on public policies and legislation affecting the country’s economic, social, and environmental sectors.

In an interview with The Beiruter, ESEC President Charles Arbid explained the council’s mandate, ongoing work, the obstacles it faces, and why he believes it can become a more influential contributor to public policymaking.

Obstacles to greater influence

Despite its growing visibility, Arbid acknowledged that the council continues to face significant institutional challenges.

In his view, one of the main obstacles is the limited tradition of participatory policymaking within Lebanon’s political system. Political actors often negotiate among themselves, while broader consultation with economic and social stakeholders remains relatively uncommon.

We still lack this culture of participation.

He argued that many organizations naturally advocate for the interests of their own constituencies, a legitimate role in any democracy, but said the council serves a different purpose. Rather than acting as a lobbying group, it seeks to assess the wider economic and social implications of government decisions and promote policies that maximize benefits for the country as a whole.

He also noted that similar economic and social councils exist in dozens of countries worldwide, where governments routinely consult them before implementing major reforms. While Lebanon’s council has become more visible in recent years, he said the next objective is to increase its practical influence by encouraging both the executive and legislative branches to make greater use of its expertise.

Our role is to think, discuss, and recommend. Implementation belongs to governments.

A platform for dialogue and consultation

Arbid asserted that the council is fundamentally

an independent, representative, advisory institution.

Rather than serving as a decision-making authority, its primary function is to provide informed opinions on economic, social, and environmental policies while creating a structured space for dialogue between the state and society.

The council brings together representatives from across Lebanon’s productive sectors, including employers, labor unions, professional associations, educators, environmental organizations, civil society groups, intellectuals, and the Lebanese diaspora. Through this broad representation, it seeks to ensure that diverse perspectives are considered before major public policies are adopted.

Arbid described the council as the missing link between decision-makers and citizens. Instead of limiting communication to elections or sector-specific demands, he argued that Lebanon needs a permanent institutional mechanism where ideas can be exchanged, priorities debated, and consensus gradually developed.

“The council is, first and foremost, a space for dialogue,” he said, explaining that discussions between public officials and representatives of productive sectors often lead to policy recommendations and long-term strategies. “How do you connect decision-makers with the people?” he added.

The council creates this connection by bringing together those who legislate, those who implement policies, and those affected by them.

Advisory role under the updated law

A key development came with amendments introduced in 2022 through Law No. 288, which strengthened the council’s consultative role. Under the revised framework, the government is required to seek the council’s opinion on public policies and draft legislation with economic, social, or environmental implications before they are adopted.

However, while requesting the council’s opinion is legally mandatory, the government is not obliged to implement its recommendations.

Our role is not to take decisions. Our role is to provide opinions and recommendations.

Arbid stressed that this important legal provision has yet to be consistently applied. He noted that governments have not fully developed the institutional practice of consulting the council before introducing legislation or major policy initiatives, despite the updated legal requirement.

The revised law also broadened public participation by allowing citizens to petition the council to examine issues of public concern. If a petition gathers at least 5,000 signatures, the council may study the issue and issue an advisory opinion, creating an additional channel through which citizens can participate in policymaking.

From studies to policy recommendations

Beyond its formal advisory responsibilities, the council has expanded its work through research, public dialogue, and sectoral consultations.

According to Arbid, the council regularly convenes ministers, parliamentary committees, and representatives from various economic and social sectors to discuss government strategies and identify practical policy recommendations. These meetings are complemented by studies and policy papers addressing issues such as poverty, unemployment, housing, healthcare, and broader social conditions.

Among its recent initiatives, the council organized the Beirut I Investment Conference before regional developments disrupted its expected outcomes. It also partnered with the Ministry of Agriculture to host a national agricultural conference that produced reform recommendations for the sector.

The council has likewise participated in discussions concerning wage policies, social security reforms, labor issues, and efforts to accelerate the implementation of executive decrees related to Lebanon’s social protection law. Arbid also highlighted ongoing work on policies affecting salaries, social insurance, productive growth, and measures intended to strengthen the competitiveness of the Lebanese economy.

Another area of focus has been fiscal policy. Arbid said the council has repeatedly cautioned governments against relying too heavily on taxes and fees without adequately assessing their broader economic consequences.

Throughout these initiatives, he highlighted that the council’s mission is not to defend the interests of a single sector but to evaluate how policy decisions affect society as a whole.

The council’s general assembly and its representatives are the link between executive authorities, decision-making centers, and society.

The council’s legal framework and mandate

The ESEC was originally established under Law No. 389 of 12 January 1995, following the commitments outlined in the 1989 Taif Agreement. Its creation responded to long-standing calls for an institutional framework that would involve economic, social, and professional sectors in shaping national policy.

The council’s mandate centers on two principal responsibilities: contributing expert opinions and advice on the state’s economic and social policies, as well as promoting dialogue, cooperation, and coordination among Lebanon’s various productive sectors.

The council entered a new phase of restructuring following the issuance of Decree No. 1713 on 4 November 2025, which identified the most representative bodies of the sectors forming the Council. The decree aims to reconstitute the ESEC after the previous council’s mandate expired and continued operating in a caretaker capacity since 2020.

The revised law strengthened the Council’s consultative role by requiring the government to seek its opinion on draft laws, national plans, and public policies related to represented sectors, while its recommendations remain non-binding.

Despite its expanded role, the Council has faced challenges in translating consultation into concrete policy influence, particularly during Lebanon’s economic crisis since 2019. Additionally, the Council’s expanded mandate has prompted constitutional debate, particularly over Parliament’s ability to refer draft legislation for its opinion, as the ESEC is established by statute rather than the Constitution.

With the issuance of Decree No. 1713, however, the appointment of a renewed Council is expected to move forward, potentially strengthening its role as a platform where policymakers, experts, and civil society can collectively examine public policy.