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- Reports of the Secretary-General
Remarks of SRSG Ghassan Salamé to the United Nations Security Council
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SRSG Ghassan Salame Briefing to the Security Council - 18 November 2019
Mr. President
Members of the Security Council,
Seven and half months into the conflict in Libya, and given the recent dangerous escalation in the hostilities in and around Tripoli, we find ourselves ever more in a race against time to reach a peaceful solution that would spare many lives. I will provide you with an update on the security situation before turning to political developments.
I am angry and sad to report to you that today there was another mass civilian casualty event. A biscuit factory in the Wadi Rabi’a neighbourhood of Tripoli was hit by an air strike, according to early information. The attack has caused what we currently believe to be ten fatalities and over 35 injuries. It appears that the majority of the dead were migrants, but that at least two were Libyans. Regardless of whether the attack deliberately targeted the factory or was an indiscriminate attack, it may constitute a war crime. We are working to verify the facts and will update you accordingly.
Beyond today’s tragedy, the frontlines in Southern Tripoli are highly fluid. The dangers and direct consequences of foreign interference are increasingly evident. To fill gaps in manpower, there is growing involvement of mercenaries and fighters from foreign private military companies. The insertion of these experienced fighters has naturally led to an intensification in the violence. I am gravely worried by the expansion of artillery fire northwards into the city. Over the past days, the number of civilians killed and injured has been rising and many families are leaving the areas impacted by the shelling. A further escalation of ground fighting in these densely populated areas would lead to disastrous humanitarian consequences.
The use of air power and precision technology has become a dominant feature of an otherwise low intensity conflict. UNSMIL estimates the total number of drone strikes in support of Libyan National Army forces at well above 800 since the beginning of the conflict. The total number of drone strikes in support of the Government of National
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Accord is estimated at around 240. It is our judgement that the drone infrastructure and operations are facilitated by external parties to the conflict. There were also several incidents of precision airstrikes conducted by unknown aircraft between September and November. In addition, the increasing use of unguided bombs in airstrikes conducted by LNA forces in populated areas of Tripoli caused an increase in the number of civilian casualties.
The violence is facilitated by Libya’s plethora of Gadhafi-era arms, as well as by continued shipments of war materiel brought into the country in breach of the arms embargo. Reports indicate that everything from spare parts for fighter aircraft to tanks, from bullets to precision missiles, are being brought into Libya in support of different groups involved in the fighting.
Mitiga Airport remains closed. It has been more than two and a half months now that this key outlet for the civilian population of Tripoli and Western Libya has been forced to shut due to indiscriminate shelling and airstrikes. Misrata airport, a small mixed civilian-military facility located 250 km east of Tripoli, is now the only exit-point for Libyans in the West of the country -- who comprise the majority of the country’s population -- to travel abroad by air. Misrata Airport too has been targeted at least 11 times by precision airstrikes since early September.
Mitiga Airport needs to reopen as soon as possible. Together with the GNA Ministers of Interior and Transportation, I am working on a number of practical steps to achieve this goal, including the clear delineation between the civilian and military sections of the airport, as well as the establishment of a dedicated UN terminal.
Mr. President,
I am determined to see the end of this debilitating conflict. My colleagues at UNSMIL and I are fully engaged and have been working tirelessly with Libyans and international partners to prepare for the Second and Third Steps of the initiative I announced on 29 July.
I would like to thank the Government of Germany for their work in preparing for an international summit. Three Senior Official Meetings have already taken place and there will be a crucial fourth meeting this
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Wednesday, on 20 November. In the last discussion on 21 October, participants worked to agree on a draft communique that outlines six baskets of activities necessary to end the conflict in Libya. These six baskets include the need for the return to the Libyan-led political process and accompanying economic reform; a ceasefire, implementation of the arms embargo and security reform; as well as the upholding of international human rights and humanitarian law. Putting implementation of the arms embargo at the heart of international commitment is essential in practical terms and as a message to the Libyan people.
UNSMIL has worked to substantiate an Operational Annex to the draft communique. The annex has two purposes. It serves to outline the commitments of the members of the Berlin Group to ending the conflict and advancing the political process through tangible actions, benchmarked by indicators and outlining responsibility for those actions. It also serves as the “bridge” to the intra-Libyan political dialogue, which will be launched under UN auspices immediately following the Berlin Summit.
One of the tangible outcomes of the international summit would be the establishment of a follow-up committee that would work with UNSMIL to implement the outcomes agreed in the final communique. Such a committee would play a fundamental role in terms of ensuring respect for a ceasefire and better implementation of the arms embargo. It would contribute to supporting a return to the political process, implementation of agreed economic and financial reforms, practical ways and means to ensure no impunity for violations of IHL. The committee would also support the necessary DDR process for groups across the country.
I have been actively engaged with member states on a bilateral basis. I was in particular grateful for the visit to Libya of German Foreign Minister Maas to brief Prime Minister Serraj on the Berlin process on 27 October. Last week, I travelled to Cairo for very positive meetings with Egyptian Foreign Minister Shoukry and other high-level officials. International unity and agreement are essential to stop the violence and pursue resolution of the crisis through political dialogue. I have high hopes that the Berlin process will end in success. Let me stress once more that endorsement of the Berlin Communique does not mean the end of the process, but rather the beginning of the most important
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part of our journey to put Libya back on the path to peace and stability.
In support of the Berlin process, I have engaged extensively with Prime Minister Serraj, and the commanders of the Government of National Accord forces and I have also met with General Haftar and politicians who support him. There is a scope for agreement on ending the conflict and the basis for returning to the political process.
UNSMIL has also engaged in extensive outreach to Libyan constituencies, including in the diaspora. These meetings have involved commanders of units engaged in the fighting, their civilian representatives and political constituencies from across the country. The anger and frustration at the conflict and the strong desire for it to end emerged clearly from these discussions.
I am pleased to report that efforts continue to support the political process. The Egyptian government has been working with members of the House of Representative to try to unify the body, as a group of Western members continues to meet independently in Tripoli. We are in permanent contact with the various factions in the House of Representatives encouraging them to maintain their assembly’s integrity. Partner organisations have also held second track consultations where participants have emphasised again their desire for peaceful resolution to the conflict and proposed ideas for a way forward. These are all positive developments, reflecting a will and a commitment to ending the conflict and returning to the political track to end the crisis in the country.
Mr. President,
In parallel with our efforts at a national level, work continues directly with Libyan communities. To address the polarisation in the country, we have now hosted two workshops to stem incitement and the use of hateful rhetoric in the media. The workshops brought together journalists, editors and social media activists with instructors in human rights and representatives of social media platforms. Our ultimate goal is to conclude a Code of Conduct for the media in Libya.
At a grassroots level, we held the last in a series of three events in mid-October to support local mediators. Over 120 Libyans, including
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23 women, have attended these meetings which aim to establish a national network of mediators which will include tribal leaders, elders, representatives of civil society, youth and women activists, academics and businesspeople, who enjoy credibility and respect amongst their various constituencies.
Municipal elections remain on hold following a June court ruling that cancelled the electoral regulation administering the elections. It is a positive reflection of the democratic spirit in Libya that many mayors are nevertheless requesting to renew the expired mandate of their Councils through elections. I recently met with the chairperson of the Central Committee for Municipal Council Elections who assured me of the readiness of the committee to resume municipal elections once the legal basis is restored. On 4 November the Sebha Court of First Instance validated the results of the municipal elections in Sabha, that took place in 27 April. While another legal challenge against the results remains pending, and, the petitioners’ announcement that the validation ruling will be appealed to the Supreme Court, this is nevertheless a welcome and important development for the largest city in Southern Libya.
In Sirte, UN agencies launched a project to support youth and adolescents to become active agents of change and peace. This is a welcome first effort to implement UNSCR 2250 on Youth, Peace and Security in the Libyan context.
Mr. President,
Let me take this opportunity to raise once again the case of Seham Sergewa, the member of the House of Representatives abducted from her home on 17 July. For over four months, authorities in the East have been unable to produce information about the fate of this woman legislator and outspoken rights activist.
Ms. Sergewa’s fate is part of a larger pattern of violence against women across the country. The Mission is documenting instances of killing and forced disappearances, including, on 16 October, the case of a 70-year-old Libyan woman abducted from her home in Benghazi after she was accused of practicing witchcraft. In addition, women migrants and refugees in Libya are at risk of rape and other forms of
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sexual and gender-based violence, sexual exploitation and forced prostitution in detention and at large.
On a positive note, I am pleased to report that Libyan women were recognised for their peacebuilding efforts. On 16 October, the BBC named Ms. Reda Al-Tabuly – who you will have a chance to hear from today and who is a peace campaigner and the chairwoman of Together We Build It Organization -- as one of the 100 most influential women for 2019.
Mr. President,
In Tripoli, the effects of the conflict continue to impact the civilian population. More than 200 civilians have been killed and more than 128,000 people have fled their homes since the conflict began on 4 April. More than 135,000 civilians remain in frontline areas, and an additional 270,000 people live in areas directly affected by conflict.
Since the beginning of 2019, violence in Libya has had a devastating impact on health care in the country with 60 attacks against health care facilities, medical personnel, and ambulances registered. We have observed a clear pattern of precision airstrikes targeting the medical facilities of Government of National Accord forces. Intentionally directing attacks against medical facilities and personnel, wilful killing or harming of sick or wounded people may constitute war crimes.
Migrants and refugees continue to be at risk of unlawful killings, torture and other ill-treatment, arbitrary detention and unlawful deprivation of liberty, rape and other forms of sexual and gender-based violence, slavery and forced labour, extortion and exploitation. Serious concerns also continue with regard to the transfer of migrants intercepted at sea by the Libyan Coast Guard to official and unofficial detention centres including to Zawiya Detention Centre and the Tajoura Detention Centre, that the authorities reported on 1 August 2019 was to be closed.
A health sector assessment conducted in October 2019 revealed a sharp increase in unmet health needs, particularly for women and girls. More than 24% of health facilities are closed due to the conflict, electricity cuts or structural damage, and services are interrupted in many other health facilities. Children are unable to reach schools,
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dozens of which have been destroyed. Nearly 30 more schools are being used as shelters for displaced persons.
The United Nations and its humanitarian partners have reached over 310,000 people with humanitarian assistance this year. Unfortunately, humanitarian needs exceed the means at our disposal. To date, less than half of the appeal for USD 202 million under the Libya Humanitarian Response Plan has been funded. I encourage donors to help us shrink the funding gap.
In southern Libya, the UN country team continues to support the Ahali population displaced from Murzuq, very few of whom have returned to their homes. UNSMIL has continued to meet with Ahali and Tebu leaders to resolve the underlying grievances between the communities and enable the safe and dignified return of the Ahali population.
Mr. President,
I regret to inform you that there are no new developments in my appeal for more information regarding the 10 August attack which killed three UN staff members and severely injured two others. A Board of Inquiry sent from Headquarters arrived some days ago and I call on all Libyan parties to cooperate positively with this body. Our two injured staff members continue to recover. We are committed to remaining in Libya to serve the Libyan people.
Mr. President,
It is somewhat of a cliché to say that the weeks ahead are critical – but once again, it is true for Libya. External investment in the conflict risks surpassing the amount of national involvement, taking control of Libya’s future away from the Libyans and putting it in the hands of foreign parties. Once invited in, foreign intervention is the guest that settles and seizes control of the house.
It is in the interests of all Libyans to reject outside interference in their country’s affairs, and I look to them for their support in calling for external actors to adhere to the arms embargo and commit tangibly to ending the conflict on the ground, before it’s too late.
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Ending the conflict and agreeing to the way forward is a realistic prospect. The parties are known. The outlines of the agreement are known. Options for a temporary or longer-term constitutional framework exist. Electoral legislation has been produced before. It is all eminently possible. All that is needed now is for you, the international community, to come together to provide the necessary umbrella for the Libyan parties themselves to join hands to end the conflict and resume dialogue. The United Nations is in Libya, and will remain in Libya, to support the Libyan people on their journey.
Thank you.
- Security Council Resolutions and Statements
Security Council Resolution 2486 (2019) -on 12 September 2019- extending UNSMIL mandate until 15 September 2020
Security Council Resolution 2486 (2019) -on 12 September 2019- extending UNSMIL mandate until 15 September 2020
Remarks of SRSG Ghassan Salamé to the United Nations Security Council
Mr. President,
Allow me to congratulate the Russian Federation for its Presidency of the Security Council this month.
Mr. President,
Members of the Security Council,
I am grateful for the Council’s expression of support on the occasion of the emergency session held on August 10, the day of the Benghazi bombing which killed three United Nations staff members.
I would like to pay tribute to our colleagues and friends Clive Peck, Hussein El-Hadar, and Seniloli Tabuatausole whose lives were cut short by that cowardly attack. Clive and “Tabs”, as he was known, travelled the world as UN security personnel, enabling the vital work of peace making and delivery of life-saving humanitarian assistance. Hussein had been with the Mission for nearly six years and was due to be married this month. As United Nations staff members, their sacrifice for the benefit of Libya and of all Libyans will not be forgotten.
I also want to pay tribute to our two staff members who are still recovering from serious injuries and the eight other injured Libyan civilians. In parallel to the United Nations internal inquiry into the incident, we are requesting Libyan authorities to cooperate with us in the investigation and to swiftly bring to justice the perpetrators. I would like to call upon Member States to provide the UN with any information they may have on this horrific attack.
The United Nations will remain in Libya. Naturally, we will work to mitigate further the risk to our personnel and operations, but the tragic irony is that the worse the situation on the ground becomes, the greater the need for our presence, mediation efforts, and provision of humanitarian assistance. The Benghazi hub remains open and a limited number of UN staff members continues to operate from there. A longer-term position concerning the hub will only be taken once a fuller assessment of the security situation in the city and associated risks has been taken.
Mr. President,
Today marks five months to the day since General Haftar launched his offensive to seize control of Tripoli, halting an active and promising political process and returning the country to renewed conflict. Since the 4th of April, the conflict has spread geographically and has exacted a heavy toll on civilians and those fighting. To date, more than 100 civilians have been killed and over 300 injured, and 120,000 civilians have been displaced. There are no confirmed figures for the total number of fighters who have died so far, but anecdotally the figure appears to be in the low thousands. Yet another generation of young Libyan men are spilling their blood on the battlefield when their skills could better be used to rebuild their country.
I would like to draw your attention to the shelling of airports. A disaster was closely averted last Sunday when a plane full of returning pilgrims from Mecca was miraculously not hit by a series of shells fired at Mitiga airport. Seven people were injured. I would ask for the Council’s strong support in condemning such indiscriminate shelling which threatens the lives of substantial numbers of civilians.
The UN have consistently responded to GNA requests that we inspect sites that have been subject to attacks. We have conducted multiple visits to Mitiga airport, one to Zuwara airport, and to other civilian sites including the Tajoura Detention Centre that have been subjected to either air strikes, drone attacks or have been hit by various projectiles since the 4th of April. The reports from all these visits are shared with the Panel of Experts and when necessary with the ICC as well.
Mr. President,
The situation in the southern town of Murzuq continues to be grave. Over one hundred people have been killed and many more injured in fighting between the Tebu and Ahali communities; this includes the precision airstrikes on 4 of August targeting a gathering of Tebu representatives in which over 40 were killed. Thousands have been displaced as homes and businesses have been looted and burned. This local conflict risks taking on a national dimension as each party mobilises national actors behind them.
Elders from outside Murzuq have tried to mediate an end to the violence but unfortunately without success. On 24th and 25th of August, following a number of preparatory meetings, I convened separate sessions with Ahali and with Tebu representatives to discuss: ending the violence, the return of the displaced and to initiate a discussion on how the roots of grievances can be addressed to prevent future tensions again turning into serious conflict. The UN Humanitarian Agencies have delivered assistance to 1,500 families affected by the violence in Murzuq.
Reestablishing local civil peace is an integral part of our mission. It is particularly true in the south where the events in Murzuq may spill-over to other cities where different tribes and ethnic groups have until recently lived in peace.
Local peace also needs to be built on stable local authorities. I remain concerned by attempts of the unrecognised eastern government to assert control over local municipalities. The efforts by the interim government to conduct parallel municipal elections or establish appointed municipal steering committees, including in municipalities where elected councils are already in place, are exacerbating local conflict and fragmenting local governance structures. This is unfortunate given that local governments are the most resilient institutions and are expected to play a crucial role in reconciliation, delivery of services and reconstruction and Libyans broadly agree on the need for further decentralization.
Mr. President,
Kidnappings and enforced disappearances continue across the country. I am very disappointed to report that there has been no news regarding the fate of the House of Representatives member Siham Sergewa since she was abducted from her home in Benghazi on the 17th of July. I reiterate the call on the authorities in the east to investigate the enforced disappearance of Madam Sergewa and make the findings known. These authorities are responsible for the safety and security of the people under their territorial control and they must take all necessary steps to clarify her whereabouts. The voices of Libya’s elected representatives cannot be allowed to be quashed through intimidation or enforced disappearance. I welcome the continued and loud support of the many member states demanding Ms. Sergewa’s swift return and I again reiterate the absolute need for those found responsible for violations of international humanitarian law and international human rights law to be held accountable before the competent bodies.
Mr. President,
Following my call for the gradual and progressive closure of all detention centres holding migrants and refugees, on the 1st of August the Minister of Interior ordered the closure of three of these centres. The United Nations submitted a contingency plan to the Government of National Accord on alternative options to detention. This plan includes release into urban settings with provision of assistance, provision of necessary health care, access to the labour market, and identification of durable solutions outside Libya. These centres need to be closed through a gradual and deliberate process in which the relevant UN agencies are provided the necessary means to assist this vulnerable population.
Despite these calls and Government claims to have shuttered the Tajoura Detention centre – which was the site of the deadly airstrike in July – migrants continue to be sent there. Migrants and refugees continue to be detained on compounds controlled by armed groups placing them in extreme danger. Nearly 500 of those who escaped the July attack on the Tajoura detention centre spontaneously entered the Gathering and Departure Facility which is managed by the Department of Combatting Illegal Migration. With over 1,000 refugees, the infrastructure in the Gathering and Departure Facility is overstretched and the humanitarian situation in the facility is deteriorating rapidly.
Hundreds of migrants and asylum seekers were intercepted by the Libyan Coast guard in recent weeks. Some are now being freed and others are being handed over to detention centres, we know at least of 3 cases where the boats, the occupants of the boats were immediately freed when they landed on the Libyan land. UNSMIL continued to receive reports of indefinite arbitrary detention of migrants and refugees, extortion and beating, trafficking and inhumane conditions of detention including severe overcrowding and shortages of food and water. Urgent funding for the 2019 Humanitarian Response Plan is necessary to allow us to continue to respond to the needs of the most vulnerable in Libya including migrants.
Mr. President,
It is notable that in response to my 29 July call for a truce there was an explicit and positive response by the Government of National Accord as well as a positive though unilateral and conditioned response from General Haftar. As a result of the truce, there was the substantial reduction in violence along the main fronts in southern Tripoli and elsewhere. There were certainly some violations, but broadly speaking, the truce held for the duration of the Eid festivities.
Despite the subsequent relapse of violence, the principle has been established that both parties can commit to a prolonged truce and without a doubt the wide and public support of the international community played an important role in the lull in the fighting.
We are working to build on the Eid al Adha truce through confidence-building measures to establish a deeper and more prolonged ceasefire. When such a ceasefire takes place, it will be necessary that it is sufficiently robust to enable stability for the benefit of Libyans and a return to the political process. In this regard, I would encourage the Council to consider adding a provision to the Mission’s mandate to enable scaleable ceasefire support for whatever form of further truce or cessation of hostilities is agreed between the parties.
The violence in Libya is exacerbated by the supply of additional arms, ammunition and war materiel into the country. Violations of the arms embargo have been both routine and often blatant by both of the main parties to the conflict and their respective sponsor Member States. The Panel of Experts is reportedly investigating over 40 cases of varying magnitude, despite non-cooperation by most of the perpetrator Member States. It is sadly true to say that the arms embargo has been ineffective since 4 April 2019 and that there have been no interdictions or searches conducted at sea, despite such activities being authorised by resolution 2473. The reported recent arrival of thousands of mercenaries into the country risks the further extension and escalation of the conflict.
Mr. President,
We continue to mobilize national and international support for a further cessation of hostilities and renewed dialogue. After a long tour in the East of the country, my Political Deputy recently visited Misrata as part of our engagement with communities across Libya. As combat fatigue has become more prevalent on the ground, we are working to build confidence between the parties. Despite the bellicose rhetoric and strong polarization in the country, there is popular support for an end to the violence, including by the actual fighters. In fact, fighters are sometimes more sensitive to the idea of ending the conflict than some of the politicians. Confidence-building measures between the different groups engaged in the conflict include: the exchange of prisoners, exchanges of mortal remains, family visits to prisoners and in some cases phone calls to establish proof of life.
In parallel, I have started an intensive campaign with international stakeholders in order to reach consensus for an international meeting of concerned parties that would contribute – through an unequivocal message – to ending the conflict and resuming the political process. To support this goal, I visited Germany, Malta, the United Arab Emirates, Turkey and Tunisia and two days ago I had lengthy and constructive discussions with leading officials in Cairo. I intend to continue my tour in the days ahead starting with the Arab Maghreb.
I am particularly grateful for the strong message delivered by the Group of 7 major powers calling for an international conference bringing together all the stakeholders and regional actors relevant to the conflict in Libya as well as for the recognition that only a political solution can ensure Libya’s stability. It remains abundantly clear that without the commitment of key external actors engaged in Libya, the conflict will continue.
The international conference is the second step in my three-point initiative. We would like the international community to use this meeting to send a strong message on the need for respect of the arms embargo, to commit to non-interference in Libyan affairs, and to address the main causes of conflict as formulated by the Libyans themselves and to emphasise its clear and active support for whatever political formula the Libyans agree to. An international meeting, with the active support of our partners from the concerned regional organisations, therefore remains a sine qua non to gain the commitment necessary by the main external stakeholders to end the conflict and resume a Libyan-owned political process.
Mr. President and members of the Security Council,
Many Libyans feel abandoned by part of the international community and exploited by others. Without the unequivocal support of this Council and the broader international community for an immediate end to the Libyan conflict, I believe we are faced with two highly unpalatable scenarios. One scenario is a persistent and protracted low intensity conflict which will see continued fratricide amongst the Libyans, the immiseration of the population and exposure of the vulnerable migrant and refugee community to further depredations, more destruction of the country’s already battered infrastructure, and a growing transnational terrorist threat. An equally unsatisfactory scenario is a doubling down of military support to one side or the other by their external patrons, resulting in a sharp escalation that will assuredly plunge the entire region into chaos. The idea that war should be given a chance and that a military solution is at all possible is quite simply a chimera. I believe this august council is capable of more. And I also believe that the Libyans deserve better.
Thank you