Security Council Extends Mandate of African Union Mission in Somalia
Department of Public Information • News and Media Division • New York
7056th Meeting (AM)
12 November 2013
Security Council Extends Mandate of African Union Mission in Somalia,
Requests Increase in Troop Strength
The Security Council today extended the mandate of the African Union Mission in Somalia (AMISOM) to 31 October 2014, requesting the African Union to increase the troop strength of that regional peacekeeping body from 17,731 to a maximum of 22,126 uniformed personnel as part of overall efforts to combat the increasingly asymmetrical tactics of Al-Shabaab rebels in the country.
Unanimously adopting resolution 2124 (2013) under the Charter’s Chapter VII, the 15-member body also expanded the logistical support package for AMISOM for a maximum of 22,126 uniformed personnel until 31 October 2014. It agreed with the Secretary-General that conditions in Somalia were not yet appropriate for the deployment of a United Nations peacekeeping operation, taking note of benchmarks for such efforts outlined in his 14 October letter (document S/2013/606).
By other terms, the Council underlined that increases in force strength were to provide enhancement of AMISOM’s military capacity for 18 to 24 months, and further, were part of the Mission’s overall exit strategy, after which a decrease in force strength would be considered. It agreed with the Secretary-General on the critical need for sourcing contingent-owned equipment, including force enablers and multipliers, either from existing AMISOM troop contributors or other States, citing the particular need for up to 12 military helicopters. It encouraged Member States to respond in that regard.
Further, the Council requested the Secretary-General to work with the African Union to improve by 1 January 2014 the strategic management of AMISOM by strengthening command and control structures, the coordination of contingents, joint operations with the Somali National Army (SNA) and information management.
As for Somali institutions, the Council requested the United Nations Support Office for AMISOM to provide – as exceptional support — food, water, fuel, transport, tents and “in-theatre” medical evacuation to front-line units of the Somali National Army, the funding for which would be provided from an appropriate United Nations trust fund.
Regarding United Nations personnel, the Council took note of the Secretary-General’s intention to deploy a guard force to strengthen security at the United Nations Assistance Mission in Somalia (UNSOM). It requested details on its deployment “as soon as possible” and emphasized, in that context, the importance of AMISOM’s protection of Mogadishu International Airport Compound within the troop ceiling. On the political front, it urged increased collaboration among the African Union, United Nations and Somali Government towards a comprehensive approach to peace, security and development.
Speaking after adoption, the representative of the Russian Federation said he had voted in favour of the resolution to support African Union efforts in fostering settlement in Somalia, based on the key role that its mission had played in that regard. However, some of his Government’s concerns had not been borne in mind. He was seriously concerned by the wording in paragraph 21, which outlined the Somali Government’s requirement to provide full access to humanitarian organizations, which ran counter to the principles of humanitarian assistance.
He went on to say that the Federal Government was not in a position to control a significant part of the country and that humanitarian organizations were leaving Somalia not because they had been hindered by the Government, but rather, because of the security situation. In establishing humanitarian principles, the Council was getting into an area not covered by its remit — standard setting, which was covered by the General Assembly. Therefore, he did not consider the wording in paragraph 21 as setting a precedent.
The representative of Somalia said that, over the last year, the important parts of his country’s six-pillar policy had been implemented. While the Council had “sustained” Somalia for a long time, there was now a light at the end of the tunnel. Its partnership in support of critical priorities was at a turning point. Indeed, the Council had noted the achievements of AMISOM to liberate Somalia from the scourge of Al-Shabaab, as well as the assistance and training that had enabled his Government to liberate the residual components of that group.
He went on to express hope that the Somali Army contingent fighting with AMISOM to defeat Al-Shabaab would be supported in a more consistent and timely manner by the United Nations, raising questions over when resources from the United Nations trust fund would arrive. AMISOM had been given 18 to 24 months to complete its mandate and he wondered if the trust fund would allow Somali armed forces to liberate the country in enough time for preparations for elections in 2015-2016 to proceed. All means should be applied to ensure those funds arrived as soon as possible. “Otherwise it will be a disaster for Somalia once again,” he cautioned.
The meeting began at 10:10 a.m. and ended at 10:25 a.m.
The full text of resolution 2124 (2013) reads as follows:
“The Security Council,
“Recalling its previous resolutions on the situation in Somalia, in particular resolutions 2036 (2012), 2093 (2013) and 2111 (2013), and statements of its President on the situation in Somalia,
“Reaffirming its respect for the sovereignty, territorial integrity, political independence and unity of Somalia, and reiterating its commitment to a comprehensive and lasting settlement of the situation in Somalia,
“Taking note of the Joint African Union (AU)-United Nations Mission on the benchmarks for a United Nations Peacekeeping Operation in Somalia and their assessment of the African Union Mission in Somalia (AMISOM) and Somali National Security Forces, and underlining the importance it attaches to greater peace, prosperity and stability in Somalia,
“Taking note of the AU Peace and Security Council’s 10 October Communiqué on the Joint AU-United Nations Review of AMISOM and the benchmarking exercise, and welcoming in particular its call to all AU Member States to contribute financially to AMISOM,
“Welcoming the constructive manner in which both the Secretariat and the AU conducted the joint review,
“Underlining its gratitude for the work of AMISOM, in particular the extraordinary sacrifices made by AMISOM forces and personnel in pursuit of peace in Somalia,
“Welcoming the support of the international community to peace and stability in Somalia, in particular the European Union for its substantial contribution in supporting AMISOM, and emphasizing the importance of new contributors sharing the financial burden of supporting AMISOM,
“Noting with appreciation recent high-level events on Somalia which have generated substantial pledges of support, and underlining the importance of delivering on any support pledged at these events,
“Condemning recent Al-Shabaab attacks in Somalia and beyond, which serve to undermine the peace and reconciliation process in Somalia, and expressing its solidarity with the people and Governments of Somalia and the region,
“Expressing serious concern at the Secretary-General’s assessment in his
14 October letter to the Security Council that recent security gains against Al Shabaab are at serious risk of being reversed, and noting that the Somali National Army (SNA) and AMISOM have now assumed a more defensive posture,
“Noting the Secretary-General’s assessment that there is an urgent need to resume and strengthen the military campaign against Al Shabaab, which requires an enhancement of international support to the Somali National Security Forces and to AMISOM,
“Noting the Secretary-General’s assessment that a comprehensive strategy that includes political, economic and military components is needed to reduce the asymmetrical threat posed by Al-Shabaab,
“Acting under Chapter VII of the charter of the United Nations,
“1. Decides to authorize the Member States of the AU to maintain the deployment of AMISOM, as set out in paragraph 1 of resolution 2093 (2013), until 31 October 2014, which shall be authorized to take all necessary measures, in full compliance with its obligations under international humanitarian law and human rights law, and in full respect of the sovereignty, territorial integrity, political independence and unity of Somalia, to carry out its mandate;
“2. Agrees with the Secretary-General that conditions in Somalia are not yet appropriate for the deployment of a United Nations Peacekeeping Operation, takes note of the benchmarks for a United Nations Peacekeeping Operation as set out in the Secretary-General’s 14 October letter, and endorsed in the 11 October letter of the AU Commission Chairperson, and requests that the Secretary-General keeps progress against the benchmarks under continuous review, in consultation with the AU, and with a view to creating conducive conditions for the potential deployment of a United Nations Peacekeeping Operation and the hand-over of security responsibilities to national authorities;
“3. Requests the AU to increase AMISOM’s force strength from 17,731 to a maximum of 22,126 uniformed personnel as set out in the Secretary-General’s 14 October letter;
“4. Decides to expand the logistical support package for AMISOM, referred to in paragraph 4 of resolution 2093 (2013), for a maximum of 22,126 uniformed personnel until 31 October 2014, ensuring the accountability and transparency of expenditure of the United Nations funds as set out in paragraph 6 of resolution 1910 (2010), and consistent with the requirements of the Secretary-General’s Human Rights Due Diligence Policy;
“5. Underlines that, in line with the Joint United Nations-AU Review of AMISOM, the increases in the force strength decided in this resolution are to provide a short-term enhancement of AMISOM’s military capacity, for a period of 18 to 24 months and as part of an overall exit strategy for AMISOM, after which a decrease in AMISOM’s force strength will be considered;
“6. Agrees with the Secretary-General on the critical need for sourcing contingent owned equipment including force enablers and multipliers as provided for in paragraph 6 of resolution 2036 (2012) either from existing AMISOM Troop-Contributing Countries or other Member States, emphasizes in particular the need for an appropriate aviation component of up to twelve military helicopters, and encourages Member States to respond to AU efforts to mobilize such equipment;
“7. Reiterates paragraphs 5 of resolution 2093 (2013) regarding logistical support to AMISOM;
“8. Further reiterates paragraph 13 of resolution 2093 (2013) on the strengthening of women and children’s protection in AMISOM operations and activities;
“9. Requests the Secretary-General to work closely with the AU in order to support the implementation of this resolution, in particular by improving efficiency in the planning and strategic management of AMISOM, including strengthening command and control structures, the operational coordination of contingents, joint operations with the SNA, and information management, through a new Concept of Operations by 1 January 2014, with a view to enabling AMISOM to respond to the increasingly asymmetrical tactics used by Al-Shabaab, through an effective resumption of the military campaign against Al-Shabaab, which would rapidly reduce its capacity to control key strategic locations, and further requests the Secretary-General to continue to provide technical and expert advice to the AU in the planning, deployment and management of AMISOM through the United Nations office to the AU, and reiterates its request to the Secretary-General, in view of the substantial increases in AMISOM capabilities and support to the SNA, to enhance the provision of technical advice to the AU through existing United Nations mechanisms;
“10. Requests the AU to advance efforts to implement a system to address allegations of misconduct, which includes clear mechanisms for receiving and tracking allegations, as well as for following up with troop-contributing countries on the results of the investigations and disciplinary actions taken as applicable, and requests the United Nations to redouble its efforts to advise and provide guidance to the AU in this endeavour;
“11. Reiterates its request, and that of the AU Peace and Security Council, for AMISOM to develop further an effective approach to the protection of civilians, and stresses in particular the urgent need for AMISOM to establish and use a Civilian Casualty Tracking, Analysis and Response Cell, as requested in resolution 2093 (2013);
“12. Underlines the importance of AMISOM abiding by all requirements applicable to it under international human rights and humanitarian law, further underlines in particular the need for AMISOM to ensure that any detainees in their custody, including disengaged combatants, are treated in strict compliance with applicable obligations under international humanitarian law and human rights law, including ensuring their humane treatment and further requests AMISOM to allow appropriate access to detainees by a neutral body, and to establish Standard Operating Procedures for the handover of any detainees, including children, who come into their custody during a military operation;
“13. Reiterates its call for new donors to support AMISOM through the provision of additional funding for troop stipends, equipment, technical assistance and uncaveated funding for AMISOM to the United Nations Trust Fund for AMISOM, and underlines the AU’s call for their Member States to provide financial support to AMISOM;
Somali federal security institutions
“14. Takes note of the Secretary-General’s recommendation of the need to provide targeted support to front line units of the Somali National Army (SNA), requests UNSOA to support the SNA through the provision of food and water, fuel, transport, tents and in theatre medical evacuation, decides that this exceptional support shall be provided only for joint SNA operations with AMISOM and which are part of AMISOM’s overall Strategic Concept, further decides that funding for this support will be provided from an appropriate United Nations trust fund, and encourages Member States to make uncaveated contributions to the trust fund;
“15. Underlines that the support outlined in paragraph 14 of this resolution must be in full compliance with the United Nations Human Rights and Due Diligence Policy (HRDDP), further underlines its expectation that the Secretary-General will report on all UNSOA support to the SNA including on the implementation of the HRDDP, and also requests AMISOM to use its Civilian Casualties Tracking Analysis and Response cell as part of its reporting on joint AMISOM operations with the SNA;
“16. Underlines that all forces supported by UNSOA shall act in compliance with the Secretary-General’s Human Rights and Due Diligence Policy (HRDDP), and in that context further underlines its expectation that the Federal Government of Somalia will give its assurance to the Security Council, including in writing, that any Government forces being supported by UNSOA on joint operations with AMISOM will act in compliance with the HRDDP, and recalls the importance of training in this regard;
“17. Requests that to assist UNSOM to fulfil its mission, the Head of UNSOA shall keep the Special Representative of the Secretary-General informed on the implementation of the AMISOM support package, and further requests the Secretary-General to include this information in his regular reporting to the Security Council;
“18. Calls upon the Federal Government of Somalia to continue its efforts, with the support of the United Nations Assistance Mission in Somalia (UNSOM), AMISOM (in accordance with their respective mandates), and other international partners to strengthen the Somali National Security Forces including by mapping the structure of these forces, establishing clear command and control systems, implementing appropriate procedures, codes of conduct and training including to ensure the safe storage, registration, maintenance and distribution of military equipment and finalizing and implementing a national program for the treatment and handling of disengaged combatants and promoting respect for human rights, including through implementing the relevant Somali Government action plans on children and armed conflict;
“19. Further requests UNSOM, in accordance with its mandate, to continue to assist in the rebuilding of Somali security institutions, and reiterates in particular UNSOM’s role in providing strategic policy advice on security sector reform (SSR) and assisting the Federal Government of Somalia in coordinating international donor support on SSR;
“20. Requests UNSOM, working closely with the AU, to assist the Federal Government of Somalia in developing broad principles on the nature of policing in Somalia with a view to proposing further options to support the development of an effective police force in Somalia;
“21. Requests the Federal Government of Somalia to ensure the protection and well-being of all internally displaced persons, including from sexual violence and exploitation, paying particular attention to ensuring that the human rights of internally displaced persons in Somalia are respected in relation to relocations, and to ensure a fully consultative process, providing prior notice and ensuring safe, sanitary new sites that have basic services, as well as full, safe and unhindered access for humanitarian organizations;
Security of United Nations personnel
“22. Takes note of the Secretary-General’s intention to deploy an appropriate United Nations Static Guard unit to strengthen security at UNSOM compounds, looks forward to receiving further details of its deployment as outlined in the Secretary-General’s 14 October letter as soon as possible, and strongly emphasizes the importance of AMISOM’s protection of Mogadishu International Airport Compound within the troop ceiling authorized in this resolution;
“23. Urges increased collaboration between the AU, United Nations and Federal Government of Somalia, including on a comprehensive approach to peace, security and development which integrates political, security, peacebuilding and development activities, recognizing that none can succeed in isolation;
“24. Recalls its 13 September 2013 statement welcoming the agreement between the Federal Government of Somalia and the Interim Jubba Administration, emphasizes the importance of all parties ensuring that the timelines as stipulated in the agreement are met, and further emphasizes the importance of the Federal Government of Somalia ensuring the right political conditions are in place to ensure greater peace and stability in Somalia;
“25. Welcomes in this context the efforts undertaken by the Federal Government of Somalia to consolidate security and establish the rule of law in areas secured by AMISOM and the Security Forces of the Federal Government of Somalia, and encourages it to continue to lead an inclusive national dialogue, with the support of UNSOM, the Intergovernmental Authority on Development (IGAD), and the AU to clarify and settle relations between the Federal government of Somalia and existing and emerging local administrations and initiate processes of national reconciliation in order to accelerate efforts to establish sustainable, legitimate and representative local governance structures across the country, especially in areas recovered from Al-Shabaab;
“26. Encourages the Federal Government of Somalia to finalize and adopt a federal Constitution by December 2015, to prepare for and hold credible elections in 2016; and to ensure the equitable participation of women, youth, minority groups and other marginalized groups in national political processes;
“27. Further encourages the Federal Government of Somalia to implement its “Vision 2016” agenda which sets out the importance of a Somali-owned, inclusive, and transparent political process and economic recovery, consistent with the Provisional Constitution and including an effective federal political system and a comprehensive reconciliation process that brings about national cohesion and integration;
“28. Expresses concern at continuing violations of the Security Council charcoal ban requests the Secretary-General and his Special Representative to raise awareness amongst relevant Member States on their requirements to abide by the charcoal ban, as set out in resolution 2036 (2012);
“29. Underlines the importance of the Federal Government of Somalia and Member States complying with all aspects of the arms embargo, including the reporting and notification requirements set out in resolution 2111 (2013);
“30. Requests the Secretary-General to report on the implementation of all aspects of this resolution as part of his regular reporting to the Security Council on the situation in Somalia;
31. Decides to remain actively seized of the matter.”