Amid Hard-Won Gains, Steadfast Support for Somalia Key to Sustain Political, Economic Progress, Repel Al-Shabaab Threat, Special Representative Tells Security Council
The international community must continue to accompany Somalia along its path to full ownership of its security responsibility, senior officials told the Security Council today, as members warned that any security vacuum could be exploited by Al-Shabaab insurgents and undermine the advances made so far in the country’s political, economic and security situations.
“Through our collective support, Somalia is demonstrating that a country can emerge from prolonged conflict to one that delivers for its people and acts as a force for good in the region,” said Catriona Laing, Special Representative of the Secretary-General and Head of the United Nations Assistance Mission in Somalia (UNSOM).
She highlighted “significant achievements” made by the Federal Government of Somalia since her last briefing in October 2023, including the completion of a critical security road map, its admission to the East African Community, the completion of the Heavily Indebted Poor Countries initiative, the lifting of the arms embargo and the endorsement of the African Union Executive Council for a seat on the Security Council in 2025-26.
Also briefing the 15-nation body was Mohamed el-Amine Souef, Special Representative of the Chairperson of the African Union Commission for Somalia and Head of the African Union Transition Mission in Somalia (ATMIS), who reported that ATMIS established a solid foundation that would enable sustained progress in Somalia and a smooth transition of security responsibilities to Somali security forces by December.
To preserve hard-won stabilization gains achieved so far, the Security Council must continue to encourage partners to remain steadfast in their support of Somalia’s force-generation efforts, including the development of specialized military capability, he said, warning that “Al-Shabaab remains a major threat, possessing the capability to carry out attacks across Somalia”.
In the ensuing discussion, Council members commended Somalia for the progress made on multiple fronts, while exchanging views on a post-ATMIS mission Somalia has requested. Several speakers pointed to destabilizing factors, including the recent agreement between Ethiopia and Somaliland to allow the former to use the latter’s coastline.
On that, the representative of the United States expressed concern about the memorandum of understanding concluded between Ethiopia and Somaliland without the consent of the Federal Government of Somalia, reiterating Washington, D.C.’s, support for Somalia’s sovereignty and territorial integrity. This issue must not distract from critical State-building challenges facing that country, he stressed.
Similarly, the United Kingdom’s delegate called on Somalia and Ethiopia to de-escalate the situation. Turning to security issues, he said that Somalia, along with the African Union, the UN and other partners, has invested much, and this progress should not go to waste. He therefore encouraged all partners to continue to support the country. “If we do not, it will be Al-Shabaab who benefit,” he warned.
The representative of Mozambique, speaking also for Algeria, Guyana and Sierra Leone, welcomed the reform measures taken by the Federal Government of Somalia on the political, economic and security fronts. Additionally, Somalia’s admission to the East African Community can potentially provide opportunities for stronger regional partnerships and trade which are the necessary building blocks to boost future economic development, he said.
Rounding out the discussion, Somalia’s delegate condemned Ethiopia’s “deceptive endeavours” to disguise its failed attempt to annex Somali territory as a promotion of economic cooperation and integration. “Ethiopia’s establishment of a military base in Somalia amounts to a declaration of war against Somalia and its people,” he emphasized, adding that this has revived Al-Shabaab and threatens to reverse 30 years of gains in his country. While the Government will exercise “the highest levels of self-restraint”, it reserves the right to respond, in self-defence and under international law, to violations of its territorial integrity and unity, he added.
THE SITUATION IN SOMALIA (S/2024/129)
Briefings
CATRIONA LAING, Special Representative of the Secretary-General for Somalia and Head of the United Nations Assistance Mission in Somalia (UNSOM), presenting the Secretary-General’s report on developments from 6 October 2023 to 24 January 2024 (document S/2024/129), highlighted “significant achievements” by the Federal Government of Somalia, including the completion of a critical security road map, its admission to the East African Community, attainment of the completion point of the Heavily Indebted Poor Countries initiative, the lifting of the arms embargo and the endorsement of the African Union Executive Council for a seat on the Security Council in 2025-26. On the 10 January incident in Galmudug involving a UN helicopter, she said that the Organization is working closely with the Federal Government and all partners to secure the safe return of passengers and crew. She also recognized the tragic death of a member of the UN Guard Force Unit in an Al-Shabaab indirect fire attack on the UN compound on 11 January. “Despite these tragic events, our focus remains on supporting Somalia with its rightly ambitious agenda over the year ahead,” she pledged.
On the political front, she stated that the 27 May 2023 National Consultative Council proposals on the proposed new electoral model continue to be debated intensely. There is broad public support for the transition to one-person, one-vote elections, but the proposed timelines are too ambitious. The UN is working with the Ministry of Interior Federal Affairs and Reconciliation to develop a realistic plan. Welcoming the Parliament’s recent approval by of the procedural rules for constitutional changes, she encouraged all parties to engage in the spirit of compromise to finalize the process. “Without an agreed constitution, Somalia remains vulnerable to perennial crises with no agreed rules of the game to enable resolution,” she stressed. Additionally, she commended the federal member state of Puntland on the peaceful conclusion of the electoral process on 8 January, expressing hope that this has created the foundation for a reset of dialogue with its full re-engagement in the National Consultative Council process.
On regional developments, she noted strong hostile public reactions in Somalia to the announced signing of a memorandum of understanding on 1 January between Ethiopia and “Somaliland”, which reportedly grants the former a 50-year lease on 20 kilometres of coastline in exchange for political and economic benefits to the latter. The Security Council has repeatedly affirmed its respect for the sovereignty, territorial integrity and unity of Somalia. This situation must be resolved through constructive dialogue, she said, encouraging the President of Somalia to remain measured in his response. It is disappointing that no significant progress was made at the recent Africa Union summit, she added.
Countering Al-Shabaab remains a priority for the Government, she emphasized. The further drawdown of the African Union Transition Mission in Somalia (ATMIS) forces must be carried out in a manner that ensures protection for local communities and enables the ongoing presence of the international community in Somalia. Somalia has requested a post-ATMIS smaller African Union mission, focused on protection and an evolved UN logistics support package to strengthen national systems and capacity. The independent review of the UN Support Office in Somalia will explore how to achieve this. Predictable, sustainable funding for this mission is vital, she said, referring to potential funding modalities, including applying resolution 2719 (2023) on the financing of African Union-led peace support operations. Concluding, she said: “Through our collective support, Somalia is demonstrating that a country can emerge from prolonged conflict to one that delivers for its people and acts as a force for good in the region.”
MOHAMMED EL-AMINE SOUEF, Special Representative of the Chairperson of the African Union Commission for Somalia and Head of the African Union Transition Mission in Somalia (ATMIS), highlighted notable milestones achieved by the country since his last briefing in October 2023, including the attainment of debt relief and the lifting of the arms embargo. Additionally, Somalia has initiated the constitutional amendment process — a crucial step towards advancing good governance. Underscoring the need to promote dialogue among Somalia leaders, he cited initiatives instrumental in fostering a cohesive political environment in the country, essential for its continued development. However, he voiced concern over the recent political tensions between Somalia and Ethiopia following the signing of the Ethiopia-Somaliland memorandum of understanding. He also echoed the calls of regional partners to respect Somalia’s sovereignly and territorial integrity.
The Somali security forces — with ATMIS support — have intensified their efforts over the past 18 months, achieving success, he pointed out. However, he strongly condemned Al-Shabaab attacks on the Mission’s base camps. “It is evident that Al-Shabaab remains a major threat, possessing the capability to carry out attacks across Somalia,” he warned. He also expressed concern about the potential for Houthi infiltration in the region. The intercollective nature of such security challenges must be recognized to address them. The security transition continues under the leadership of the Federal Government of Somalia, he noted, commending the Government for co-hosting the security conference in New York in December 2023 where it presented its security sector development plan. This plan addresses important issues, including the successful completion of the transition. As a result, the transition process has seen renewed collaboration in the implementation of agreed priorities.
He further underscored that the Mission has continued to support the Somali security forces in their offensive operations against Al-Shabaab. Despite challenges such as the effect of the El Niño phenomenon, ATMIS has recently confirmed the next phase of the drawdown to ensure a smooth transition. To preserve hard-won stabilization gains achieved so far, it is crucial that the Security Council continues to encourage partners to remain steadfast in their support of Somalia’s force-generation efforts, including the development of specialized military capability, he stressed. ATMIS established a solid foundation enabling sustained progress in Somalia and a smooth transition of security responsibilities to Somali security forces by December. Sustainable financing for the Mission to ensure Somalia’s stability and institution-building, reduce the risk of conflict and effectively respond to potential threats is also crucial. This will help create a safe and prosperous Somalia, contributing to the security of the region and beyond.
Statements
The representative of the United Kingdom, spotlighting his country’s continued engagement with both Somalia and Ethiopia, called for dialogue to de-escalate the situation and expressed support for mediation efforts — including the work of the Intergovernmental Authority on Development (IGAD) and the African Union. Turning to Somalia’s security transition, he noted the funding problems faced by AMISOM and ATMIS and — while stating that his country has tried to play its part in solving them — stressed that “we are approaching a critical juncture”. Somalia, the African Union, the UN and other partners have invested much, and this progress should not go to waste. He therefore encouraged all of Somalia’s partners to continue to support the country throughout its security transition and to consider creative ways to maintain that support. “If we do not, it will be Al-Shabaab who benefit,” he said, adding that any decision regarding Somalia’s security must not compromise civilian protection and humanitarian access.
The representative of Mozambique, speaking also for Algeria, Guyana and Sierra Leone, welcomed the reform measures taken by the Federal Government of Somalia on the political, economic and security fronts. Additionally, Somalia’s admission to the East African Community can potentially provide opportunities for stronger regional partnerships and trade which are the necessary building blocks to boost future economic development. Expressing hope that a technical analysis of the National Consultative Council agreement and discussions on the proposed amendments will involve all sections of Somali society, he urged all the relevant stakeholders to come together in the spirit of compromise and agree on the way forward for the constitutional review process and the electoral model to address all the concerns raised.
On security, he welcomed the completion of Phase 2 of the ATMIS drawdown and noted Phase 3 is set to begin. “We are heading towards the post-ATMIS phase which requires the contribution of all partners to build on the important gains achieved since the establishment of AMISOM [African Union Mission in Somalia], then ATMIS,” he said, stressing that such discussions must include the participation of Somalia, the African Union, the UN and the international partners. Condemning the 11 January mortar attack on the Aden Adde International Airport area, he insisted that the transnational character of Al-Shabaab requires a response that is multinational, coordinated and synergistic.
The representative of the Republic of Korea said “Somalia stands at a pivotal moment”, with the impending full drawdown of ATMIS by the end of 2024. Tension has heightened abruptly in the Horn of Africa following the signing of a memorandum of understanding between Ethiopia and Somaliland. The country also faces multidimensional challenges regarding the political process and the humanitarian situation, often exacerbated by climate change. The Al-Shabaab terrorist group remains a significant concern, he observed, deploring the recent bombing attacks in the Bakara market and a military base in Mogadishu that led to the deaths of at least 10 civilians and 5 military personnel. “It is imperative to establish an effective post-ATMIS structure to preserve and build upon the legacy of ATMIS,” he said, adding that without it, there is a risk of reversing the hard-won counter-terrorism achievements, particularly in the current context of heightened regional tensions.
The representative of Slovenia urged Somalia to continue with political, economic and security sector reforms, emphasizing the importance of Somali-owned national dialogue with all relevant stakeholders. He also stressed the need to respect human rights and to ensure full, equal, meaningful and safe participation for women in political and decision-making processes. Expressing concern over food-insecure communities still recovering from the country’s longest-recorded drought, he called for gender-responsive humanitarian action as the majority of those internally displaced due to climate-related disasters and conflict are women and children. For its part, Somalia should work closely with regional organizations, bilateral partners and the Council to devise a sustainable proposal for a new mission with a clearly defined mandate, scope, size, duration and funding. He also expressed concern that recent tensions between Somalia and Ethiopia could undermine recent gains in the fight against al-Shabaab, calling on both countries to find a peaceful resolution on mutually acceptable terms.
The representative of France said that, despite the progress made, the situation in Somalia remains fragile, with Al-Shabaab continuing to carry out attacks, including against civilian populations and international partners. Her country is particularly concerned about the impact of this violence on the humanitarian situation, which is already weakened by climatic conditions. France extended humanitarian aid amounting to more than €10 million in 2023 and will continue its support in 2024. The European Union is also continuing its historic support for the Somalis, with nearly €543 million in humanitarian aid committed since 2017. Turning to efforts to counter Al-Shabaab threats, she said that the bloc has committed more than €4.3 billion since 2009 and is deploying two European training missions on the ground.
The representative of the Russian Federation noted the overall positive momentum in the Somali people’s realization of their national priorities. A progressive factor was the series of successful offensive operations carried out in the region by the Somali national army — with ATMIS’ support — against Al-Shabaab, which remains the main threat to the security architecture of the country and the entire Horn of Africa region. Yet, the Islamists have still been able to exploit the vacuum that emerged in some areas after the departure of ATMIS peacekeepers. “Of particular concern is the capacity of the militants who have no issue of funding, attracting recruits among youth and enjoy the support of the local population,” she cautioned. Al-Shabaab expansion into neighbouring countries confirms the regional nature of terrorist threats. Accordingly, she underscored the need to establish dialogue between the federal centre and the regions, carry out economic and judicial reform, combat corruption and amend the national Constitution.
The representative of Ecuador emphasized that “buttressing institutionality” is the only way to achieve development and halt armed violence through democratic, inclusive and transparent processes. He also urged an end to the persistent exclusion of women from political decision-making, stressing the need to actively promote political participation through the implementation of electoral quotas. Expressing concern over ongoing serious violations of children’s rights — mainly perpetrated by Al-Shabaab through attacks on hospitals and schools — he called for close cooperation between the Government and the UN to guarantee a gradual, responsible transition that avoids security vacuums and ensures full respect for human rights and international law. Further, he called on Somali security institutions to progressively assume ATMIS’ security responsibilities, guarantee civilian protection in the planning and implementation of military operations, investigate any violations that may occur and punish those responsible. He added that additional support to ATMIS and Somalia will facilitate the fight against Al-Shabaab.
The representative of the United States said that his country remains concerned about the potentially destabilizing implications of the memorandum of understanding concluded between Ethiopia and Somaliland without the consent of the Federal Government of Somalia. He reiterated support for Somalia’s sovereignty and territorial integrity and urged diplomatic dialogue to de-escalate tensions. This issue must not distract from critical State-building challenges facing Somalia, he stressed. On the security front, his country is encouraged that Somalia and the African Union are actively discussing the parameters of the follow-on mission. Regarding the Council’s December 2023 lifting of the arms embargo against the Federal Government of Somalia, work must continue for weapons and ammunition management, the development of the national counter-improvised explosive device framework, and steps to improve anti-money-laundering and countering of terrorist financing. The United States is committed to pursuing the designation of individuals and entities in the Al-Shabaab Sanctions Committee.
The representative of Malta spotlighted recent positive developments in Somalia, including its admission to the East African Community — a step that underscores the importance of bolstered regional ties. However, she voiced concern that women remain marginalized from the deliberations of the National Consultative Council, encouraging Somali authorities to promote women’s political participation. The recent increase in brutal femicides is alarming, she said, calling for an immediate investigation into these crimes. On terrorism, she said it “knows no borders”, acknowledging Somalia’s need for significant international support to build on the progress achieved through ATMIS. Stabilization remains at the forefront of any security progress, accompanied by strong local governance structures and reconciliation. The numerous violations attributed to Al-Shabaab — including the continued abduction of children for recruitment — are concerning, she cautioned, expressing support for the Somali Government’s efforts in addressing these challenges.
The representative of China, noting that 2024 is a “critical year” for the political process, security transition and national reconstruction in Somalia, stressed that international support for Somalia “must not waver”. He also expressed support for all parties in Somalia to resolve their differences through dialogue, stating that the choice of political system and development path is an internal affair. Thus, the international community should avoid imposing an external model of governance, and UNSOM should fully respect Somalia’s sovereignty and constructively support its political transition. Recalling Al-Shabaab’s recent attacks in Mogadishu, he said that this “reminds us that terrorism remains the main threat in Somalia”. Consequently, the international community should support the Government in consolidating the results of previous counter-terrorism and stabilization efforts, as well as build capacity for the Somali security sector to assume greater responsibility. He added that traditional donors should not reduce their support, shift their responsibility or “simply walk away”.
The representative of Switzerland, noting that the stability of the Horn of Africa depends on regional cooperation and the ability to settle disputes peacefully, voiced concern over the rise in tensions following the latest controversies concerning Somaliland. He highlighted Somalia’s important milestones, such as the completion of the debt relief process, accession to the East African Community and progress vis-à-vis the constitutional review. The offensive against Al-Shabaab remains at the forefront of security concerns, as ATMIS’ exit by year’s end continues. International support for Somalia, “must be discussed now”, he said. Measures to reduce the international presence must reflect the situation on the ground. The case of Somalia illustrates that the threats of climate change, food insecurity and conflict are interdependent, he observed. Several million people in the country have been affected by the recent rains, and almost a third of the population is suffering from hunger. To prevent further deterioration amid the onset of the rainy season, early action is crucial, he asserted, expressing support for the Central Emergency Response Fund (CERF).
The representative of Japan noted the Somali Security Sector Development Plan is crucial for accelerating security sector reform and achieving a smooth transition. She welcomed the Somali Government’s efforts to establish a clear legal framework for law enforcement and security functions. “The rule of law cannot be achieved in a security vacuum and security cannot be maintained without the rule of law,” she said, adding that building an effective police force constitutes a vital part of ongoing stabilization efforts. On combating Al-Shabaab, she said Somali society needs to increase its overall resilience to prevent any intrusion by the organization into areas of weakness. To that end, basic services should be accessible for all under the State’s authority. The heavy rain in 2023 clearly illustrated Somalia’s vulnerability to severe climate shocks, with tens of thousands of people in a dire humanitarian situation due to the devastating impacts of the floods, she observed, urging continued assistance from the international community.
The representative of Somalia, while welcoming that the Secretary-General’s report acknowledges positive steps taken by the Government, suggested that — “in the interest of maximizing its usefulness” — the report be redesigned to contain “less narrative, less details about minor events and more in-depth analysis of major issues, as well as recommendations and conclusions”. He also requested that the next report include a transition road map, as well as a final review of staffing and configuration. Turning to the situation involving Ethiopia, he condemned that country’s illegal actions and “deceptive endeavours” to disguise its failed attempt to annex Somali territory as a promotion of economic cooperation and integration. Such actions not only adversely impact regional stability, but also erode the credibility of the rules-based system. History shows, he emphasized, that annexation has catalysed regional tension and protracted conflict, resulting in devastating humanitarian consequences.
“Ethiopia’s establishment of a military base in Somalia amounts to a declaration of war against Somalia and its people,” he underscored, adding that this has revived Al-Shabaab and threatens to reverse 30 years of gains in his country. By unilaterally altering borders, Ethiopia is fuelling a cycle of distrust and hostility between the Somali and Ethiopian people, and these actions can have a serious destabilizing effect given the complex ethnic make-up of countries in the Horn of Africa. They will “certainly” inspire the rise of ethnic separatist groups in the region, he stressed — particularly in countries where there are constitutional provisions for secession. Further, such actions can weaken the region, disrupt global trade and create an influx of refugees that strains the resources of neighbouring countries. He added that, while the Government will exercise “the highest levels of self-restraint”, it reserves the right to respond, in self-defence and in accordance with international law, to violations of its territorial integrity and unity.