Durable Nationwide Ceasefire, Regional De-escalation Critical to Putting Peace Process Back on Track in Yemen, Special Envoy Tells Security Council
Regional de-escalation is key to bring the peace process in Yemen back on track and tackle the widespread food insecurity, the Security Council heard today from the Organization’s senior diplomatic and humanitarian officials.
“What happens regionally impacts Yemen and what happens in Yemen can impact the region,” Hans Grundberg, Special Envoy of the Secretary-General for that country, said as he highlighted a mediation landscape that had recently turned more complex. While the parties had committed to a nationwide ceasefire in late December 2023, and there had been relative calm along the front lines, “the locus of attention has since shifted”, he said.
Amid tensions linked to the war in Gaza and the military escalation in the Red Sea, he stressed, it is imperative to protect the political space and keep communication channels open. Also pointing to reports of clashes and mobilizations within the country, he expressed concern about military opportunism inside Yemen at this delicate juncture. What it needs is a durable nationwide ceasefire, he said, urging Council members to protect the mediation space in Yemen, as well as call for an immediate humanitarian ceasefire in Gaza.
Edem Wosornu, Director of Operations and Advocacy, Office for the Coordination of Humanitarian Affairs, also warned that the crisis spreading across the region could renew violence in Yemen, which would further deteriorate its humanitarian situation — currently 17.6 million people are at risk of severe food insecurity. Urging the international community to provide the World Food Programme (WFP) the resources to resume food distribution in Houthi-controlled areas, she cautioned that without sufficient aid, 2.4 million children and 900,000 pregnant women will face malnutrition.
The ongoing hostilities in the Red Sea, she said, may affect commercial imports of essential items on which the people of Yemen depend. Her Office received just 40 per cent of the total funding needed under the humanitarian appeal in 2023, she pointed out, adding that this year’s response requires $2.7 billion to reach 11.2 million people across the country. Yemen’s already fragile economy cannot handle any further major shocks, she underscored.
After the briefings, Council members took the floor, many of them acknowledging that the Middle East is at a crossroad, with tensions at risk of spilling over into a wider regional conflagration.
The solution to Yemen’s protracted conflict had been almost within reach, Slovenia’s delegate noted, adding that it is disappointing though not unexpected that the deteriorating regional situation has affected the country’s peace process. The representative of Guyana, Council President for February, speaking in her national capacity, as well as for Algeria, Sierra Leone and Mozambique, expressed concern about the use of force in this volatile situation. Such actions could derail the efforts of the Special Envoy, she said, adding that diplomatic channels must take precedence over military options.
However, the representative of the United States described his country’s strikes on Yemen as necessary and proportionate measures in the exercise of its inherent right to self-defence, as it responded to attacks on its naval vessels. “The United States does not desire more conflict in the region,” he said, adding the Houthis are also preventing the transfer of water and food to the civilian population. Iran, he said, has provided them with a growing arsenal of advanced weapons that they have used to attack commercial shipping in the Red Sea, in violation of Council resolutions.
Along similar lines, the representative of the United Kingdom, said her Government’s actions were proportionate and legal self-defence. Noting that Yemen continues to be among the most food-insecure countries in the world, she said, the Red Sea shipping disruptions caused by Houthi attacks is driving up global shipping costs and risk exacerbating the country’s humanitarian suffering. Japan’s delegate also condemned the “seizure” of the Japanese-operated Galaxy Leader and demanded the immediate release of the vessel and its 25 crew members. Many commercial ships plying between Asia and Europe are now forced to take the longer and more costly route around South Africa, he said, noting the impact on global supply chains.
Also addressing the Council today was the representative of Yemen who, too, condemned the Houthi escalation in the Red Sea and applauded the decision by the United States to designate the militia as a global terrorist group. It is necessary to restore his Government’s capacity to secure international maritime trade and facilitate the re-export of oil, he said, expressing commitment to providing all guarantees needed for the work of humanitarian assistance organizations. Welcoming regional and international initiatives to settle the crisis in his country, he reaffirmed that Yemen needs “to turn the page of devastating wars and conflict to achieve a comprehensive peace”.
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THE SITUATION IN THE MIDDLE EAST
Briefings
HANS GRUNDBERG, Special Envoy of the Secretary-General for Yemen, noted that until recently there was steady progress in mediation and relative calm along the front lines, with the parties committing to a nationwide ceasefire in late December 2023. However, “the locus of attention has since shifted”, he said, and the mediation landscape is now undeniably much more complex. Pointing to the rising regional tensions linked to the war in Gaza, and the military escalation in the Red Sea, he said mediation efforts in Yemen cannot be neatly cordoned off, and “what happens regionally impacts Yemen and what happens in Yemen can impact the region”. In response to Ansar Allah’s repeated attacks on vessels in the Red Sea, the United States and United Kingdom have struck weapons storage facilities, missile systems and other targets in Ansar Allah-controlled areas in Yemen. Further, the United States is expected to designate the group a Specially Designated Global Terrorist Group, he noted.
Stressing that it is imperative to protect the political space and keep communication channels open, he said developments inside Yemen are also worrying. There is a sense of foreboding along several front lines, with reports of clashes and mobilizations including in Shabwa, Al Jawf and Marib, among others. The scale of economic challenges across the country is simply staggering, he pointed out, noting that civil servants, especially in Ansar Allah-controlled areas, have not been paid their salaries in full. Outlining immediate priorities, he said regional de-escalation is crucial. Reiterating the Secretary-General’s call for an immediate humanitarian ceasefire in Gaza and concerns about the further spillover of this conflict, he said he was engaging the Yemeni parties and relevant regional actors to support de-escalation in the Red Sea. Yemeni parties must stop public provocations and refrain from military opportunism inside Yemen at this delicate juncture, he added. “Escalation in Yemen is a choice. And making that choice comes with a price,” he warned.
Highlighting the urgent needs in the country for a nationwide ceasefire, he also underscored the importance of paying public sector salaries, resuming oil exports, opening roads, ports and airports, and reconstruction. All parties must engage in sustainable dialogue structures under United Nations auspices, instead of engaging in the zero-sum mindset of war and extraction. A durable nationwide ceasefire would save lives and allow for the revival of economic life, he said. Further, opening roads and removing double taxation would enhance civilian safety, while resuming oil and gas production and export would generate significant finance flows. In peacetime, international donors could support rebuilding houses and infrastructure, more internally displaced persons could return home and people could participate safely and freely in civil and political life. “Yemenis deserve nothing less,” he stressed, calling on the Council to wield its influence and fulfil its collective responsibility to protect the mediation space.
EDEM WOSORNU, Director of Operations and Advocacy, Office for the Coordination of Humanitarian Affairs, said that despite the conflict in Yemen lasting over nine years, “there is still hope for a political solution at hand”. The crisis spreading across the region brings with it the risk of renewed violence, she warned, adding: “This is a cause for serious concern — for the people in Yemen and the humanitarian community serving them.” With some progress made in alleviating the humanitarian situation in 2023, which serves as an indication of the positive impacts of the United Nations brokered truce, she depicted a grim picture of massive, continuing needs referring to the recently released humanitarian appeal. In 2024, over 18 million people in Yemen — over half the population — will need humanitarian assistance and protection services, while 17.6 million people will be severely food insecure with 2.7 million women and 5 million children under the age of 5 needing treatment for acute malnutrition. “The situation will unfortunately deteriorate without urgent and sufficient funding,” she stressed.
Meanwhile, she continued, the Office received just 40 per cent of the total funding needed under the humanitarian appeal in 2023. This year’s response, which requires $2.7 billion to reach 11.2 million people across Yemen, is more targeted and informed by consultations with local authorities, humanitarian and development actors and affected people. Urging the international community to provide the World Food Programme (WFP) with the resources to urgently resume food distribution in Houthi-controlled areas, she cautioned that without sufficient resources, 2.4 million children and 900,000 pregnant women will face an elevated risk of morbidity and mortality due to malnutrition. Turning to the ongoing hostilities in the Red Sea, she warned about a possible “chilling effect” on the economy, including commercial imports of essential items on which the people of Yemen depend. “Yemen’s already fragile economy cannot handle any further major shocks,” she emphasized, echoing the Secretary-General’s call for respecting resolution 2722 (2024) to avoid further worsening of the situation in the country.
Voicing concern about the possibility of a return to conflict, she underscored Yemen’s extreme vulnerability to climate change. In 2023, heavy rains and flooding affected around 580,000 people and caused a reported 2,381 injuries and 47 deaths. Against this backdrop, she pointed out Yemen’s need for significant international support to mitigate the worst impacts of the climate crisis through access to climate financing, assistance with national preparatory systems and climate-resilient development initiatives. “This year can still be the year Yemen turns the page on the tragedy and suffering,” she said, urging the Council to offer full support to the humanitarian community responding to the urgent crisis and call on all sides to choose the path of peace.
Statements
The representative of the United Kingdom, noting that Yemen continues to be one of the most food-insecure countries in the world, said that the UN-led Humanitarian Response Plan for 2024 is a stark reminder of the dire humanitarian situation there. Her country has committed to spending over $110 million in humanitarian aid during this financial year, she said, encouraging the international community to provide further funding towards the humanitarian response plan for Yemen. Despite repeated calls to de-escalate, the Houthis have continued their illegal attacks in the Red Sea, disrupting maritime shipping and freedom of navigation in the region and risking further regional escalation. The disruption to shipping in the Red Sea caused by Houthi attacks is driving up global shipping costs, including the costs of food supplies and humanitarian aid in the region. These illegal and unjustified attacks also risk exacerbating the humanitarian suffering in Yemen. That is why the United Kingdom has taken necessary, proportionate and legal action in self-defence against targets tied to the Houthis attacks.
The representative of the Republic of Korea, recalling that Council resolution 2722 (2024) strongly condemned attacks by the Houthis on commercial vessels and demanded an immediate halt to all such attacks, urged the group to stop dangerous provocations and immediately and unconditionally release the Galaxy Leader and its crew. It is deeply worrying that, according to the Humanitarian Response Plan 2024, 18.2 million Yemenis, more than half of the entire population, are still in need of humanitarian assistance. Rather than further destabilizing the region through its attacks in the Red Sea, the Houthis should focus on the ongoing struggles of the Yemeni people and heed the international calls for an improvement in the human rights situation in northern Yemen. A permanent ceasefire in Yemen and the resumption of a Yemeni-led political process are essential, he said, voicing support for an inclusive Yemeni-led political transition process and the ongoing engagement by key regional countries, including Saudi Arabia and Oman, towards the realization of final agreements.
The representative of France stressed that the Houthis must stop their attacks in the Red Sea against commercial vessels and bear the full responsibility for the escalation as a result of their activity. Emphasizing the importance of respecting resolution 2722 (2024), she welcomed the upcoming launch of the European operation in the Red Sea, which will contribute to enhancing maritime safety. Turning to the situation in Yemen, she emphasized that “a lasting ceasefire will help improve the humanitarian situation, when almost half of the population is experiencing food insecurity”. “Yemen’s population, especially those in Houthis-controlled areas, are the front-line victims of tensions in the Red Sea,” she said, calling for the arrival of humanitarian aid to the civilian populations at a reasonable cost. Underscoring the importance of pursuing the road map put forward by the Special Envoy, she urged all parties, especially the Houthis, to achieve a political agreement with Yemen’s new Prime Minister.
The representative of China highlighted the positive progress achieved by Yemen’s political process. It is, however, concerning that the ongoing escalations in the Red Sea — in particular the military actions by certain countries against Yemen — have aggravated security risks in the Red Sea area and undermined Yemen’s political process. He called on the Houthis to stop attacking commercial vessels while stressing that the Council has never authorized the use of force against Yemen. No country should “abuse international law or Security Council resolutions to instigate new tensions in the Red Sea”. He further called on all parties to eliminate interference and advance the political process, voicing support for the Yemeni-owned and Yemeni-led process. Warning against the fragility on the humanitarian front, he urged the international community to increase humanitarian and development input in Yemen to tackle the humanitarian situation on the ground effectively. The political settlement of the Yemeni issue is closely linked to its regional environment, he observed, underscoring that the pressing priority is to push for a ceasefire in Gaza.
The representative of the Russian Federation noted that negotiations towards a political settlement in Yemen have become complicated by the ongoing aggression led by the United States and the United Kingdom. Underscoring that the right to self-defence cannot be invoked to ensure freedom of navigation, he added that Council resolution 2722 (2024) does not give any blessing for such acts of force and expressed regret that the European Union has decided to embark on a similar treacherous path with an operation slated to begin on 19 February. Condemning attacks and seizures of commercial vessels, as well as any attacks which impede freedom of navigation, he said his Government has conveyed the relevant messages to the Ansar Allah movement’s leadership and is encouraging them to finalize the relevant agreements. These dubious Western misadventures did not make navigation any safer, he pointed out, adding that the root cause of the situation is Israel’s brutal military aggression against Gaza and only an immediate ceasefire will help de-escalate the situation in the Red Sea.
The representative of Malta urged the parties to the conflict in Yemen to “remain dedicated to finding a political agreement that will lead to sustainable peace”. Welcoming the establishment of a United Nations road map to ensure the fulfilment of commitments made by parties, including the implementation of a nationwide ceasefire, she voiced concern over the humanitarian emergency in Yemen, adding: “This must remain a priority for this Council”. With nine years into this conflict, a staggering 18 million people need humanitarian assistance, she observed, calling support to the humanitarian appeal for 2024 — “a lifeline for millions of Yemenis”. Spotlighting examples of devastating impacts of the humanitarian crisis in Yemen on food security and access to education, she pointed to the country’s vulnerability to climate change. The impact of recent escalations in the region is concerning, she stressed, calling on the Houthis to immediately cease all attacks on commercial shipping per resolution 2722 (2024).
The representative of the United States said his country has responded to attacks against its naval vessels by taking necessary and proportionate measures in the exercise of the inherent right to self-defence. These strikes aim to disrupt the Houthis’ ability to continue their reckless attacks against vessels and commercial shipping in the Red Sea. “The United States does not desire more conflict in the region,” he asserted. He further stressed that Iran cannot deny its role in enabling and supporting the attacks carried out by the Houthis. Since 2014, Iran’s Islamic Revolutionary Guard Corps has provided the Houthis with a growing arsenal of advanced weapons that they have used to attack commercial shipping in the Red Sea, in violation of UN Security Council resolutions. Between 2015 and 2023, the United States and its partners have interdicted at least 18 vessels illicitly smuggling weapons to the Houthis. “The Houthis are trying to apply a chokehold on global shipping on the Red Sea,” he said, noting that they are also preventing the transfer of water and food to the civilian population. Accordingly, Washington, D.C., aims to narrowly target the Houthis’ terrorist activities while mitigating any humanitarian harm to Yemen’s people.
The representative of Switzerland said that while hopes for a peaceful settlement remain, recent regional dynamics have led to additional risks. Regional de-escalation would positively affect Yemen, and a lasting peace in that country would stabilize the region, including security in the Red Sea. Accordingly, she called on the parties to commit fully to an inclusive process under the aegis of the United Nations. Furthermore, she called on all parties to exercise restraint, as well as strict respect for international law. Any further deterioration in the situation will have devastating human and economic consequences. The Yemeni population is caught up in successive and cumulative crises, climate change being among the most serious. Combined with the conflict, the increase in natural hazards is forcing people to move, exacerbating the ongoing humanitarian crisis. This is why it is necessary not only to step up humanitarian aid but also to strengthen early warning systems. Also, the structural shortage of water resources needs to be tackled, she stressed.
The representative of Slovenia said that Yemen remains one of the most food-insecure countries in the world following years of conflict, displacement and the increasing effects of climate change, leading to droughts and flooding. “We are horrified that Yemeni children in particular are at daily risk of casualty from landmines and other deadly explosives,” he said, adding that for some time a solution to the protracted conflict seemed to be within reach. It is disappointing but not surprising that the deteriorating situation across the region has affected the peace process in Yemen, he acknowledged, welcoming the Special Envoy’s efforts to continue to engage with all stakeholders. Reiterating the call for Houthi attacks to cease, he said that diplomatic efforts must be prioritized above all.
The representative of Ecuador voiced concern about the impact of the escalation in the Red Sea on the achievement of the road map for negotiations. “Intra-Yemeni political dialogue under the auspices of the United Nations is the only viable path to sustainable peace,” he stressed. Underscoring the importance of compliance with resolution 2722 (2014), he appealed to the Houthis to cease attacks on commercial vessels and release all crew held hostage. “Greater escalation of the conflict will cancel out the slight improvement in the humanitarian situation in Yemen,” he warned, stressing that attacks on commercial vessels lead to increased transport costs and possible halts in humanitarian operations in areas where hostilities are ongoing thus impacting vulnerable populations. In this context, he echoed the Secretary-General’s and Special Envoy’s appeals to the parties to refrain from actions that could lead to new armed conflict, which would undermine the fragile peace process and exacerbate regional tensions.
The representative of Japan said that the Houthis’ continued threats to maritime security and navigational rights have led to a sharp decrease in trade via the Suez Canal. Many commercial ships are now forced to take the more costly, energy-intensive and time-consuming route around South Africa to travel between Asia and Europe. Businesses worldwide, including in Japan, have already experienced a negative real-life impact due to this disruption in global supply chains. He condemned the Houthis’ attacks and demanded their immediate cessation. Likewise, he condemned the “seizure” of the Japanese-operated Galaxy Leader and demanded the immediate release of the vessel and its 25 crew members, which the Houthis have been illegally holding for nearly three months. Voicing concern over the devastating humanitarian situation in Yemen, he warned that delays and increased costs of imports due to the growing security risk in the Red Sea will only worsen the plight of the Yemeni people.
The representative of Guyana, Council President for February, speaking in her national capacity, as well as for Algeria, Sierra Leone and Mozambique, stressed the importance of respecting the sovereignty of Yemen, and welcomed the appointment of the new Resident and Humanitarian Coordinator in that country. The people of Yemen deserve peace, she stressed, expressing support for the facilitating role of the Special Envoy, as well as the efforts of Saudi Arabia and Oman. The resumption of an intra-Yemeni political process, under the auspices of the United Nations, is vital to ensure an inclusive political process, she said, stressing the importance of preserving the commitments announced by the parties in December 2023 and the ongoing discussions around a road map that would operationalize a nationwide ceasefire. Calling on parties to provide a space for the effective and meaningful participation of Yemeni women and civil society in all stages of the peace process, she urged the Houthis to cease hostilities and refrain from threatening commercial vessels.
Expressing concern about the worsening humanitarian situation, especially food insecurity, in the country, she said all parties must remove the barriers affecting humanitarian aid flows. “We would welcome the resumption of food supplies to the country by the World Food Programme,” she said. The parties have a legal obligation to ensure that humanitarian personnel are allowed to carry out their work unhindered and free from harm, she said, calling for an immediate end to all forms of intimidation. Also expressing concern about the use of force in an already volatile situation, she said the spate of air strikes endanger the peace talks. Calling for caution in avoiding any action that could derail the Special Envoy’s efforts, she said all involved must exercise maximum restraint and prioritize diplomatic channels over military options. The Middle East is at a crossroad, with the possibility of a wider regional conflagration, she said, adding that an immediate ceasefire in Gaza and addressing the root causes of that conflict is crucial for regional stability.
The representative of Yemen underscored the need “to turn the page of devastating wars and conflict to achieve a comprehensive peace”, highlighting his country’s openness to all initiatives and good offices geared towards this goal, including the Gulf Initiative, the outcomes of the National Dialogue Conference and relevant resolutions, particularly resolution 2216 (2015). Commending the regional and international efforts to settle the crisis in Yemen, he warned that the Houthis escalation in the Red Sea and the delivery of weapons from Iran to the Houthis will continue “to escalate the crisis in Yemen and to worsen the humanitarian situation”. Against this backdrop, he called for international support to restore his Government’s capacity to secure international maritime trade and regain control of cities and ports used by the Houthis as launching pads. “We call upon the international community to correct the false narratives and to reverse the approach that was adopted vis-à-vis the current situation in Yemen,” he said, applauding the decision by the United States to designate the Houthi militias as global terrorist groups.
Turning to the dire economic and humanitarian consequences of the recent escalation, he highlighted the increased costs of maritime goods and the food product crisis. For this reason, international support is urgently needed to facilitate the re-export of oil, which is vital for Yemen’s economy, as well as to transfer the money provided to his country through the central Yemeni bank to Adan to stabilize the national currency. In this regard, he welcomed the economic and financial assistance of Saudi Arabia and the United Arab Emirates to the Yemen Government to tackle economic challenges and support the State budget. His country is committed to providing all facilities and guarantees for the work of humanitarian assistance organizations in Adan despite the arbitrary measures undertaken by the Houthi militias. On the war in Gaza, he called for an immediate ceasefire and protection of Palestinian civilians against Israeli aggression, emphasizing the need for a fair and lasting peace in the region through the recognition of a Palestinian State within the 1967 borders and with East Jerusalem as its capital.
https://press.un.org/en/2024/sc15590.doc.htm
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