United Nations S/RES/2591 (2021)

Security Council Distr.: General

30 August 2021

Resolution 2591 (2021)

Adopted by the Security Council at its 8845th meeting, on
30 August 2021

The Security Council,

Recalling all its previous resolutions on Lebanon, in particular resolutions 425
(1978), 426 (1978), 1559 (2004), 1680 (2006), 1701 (2006), 1773 (2007), 1832
(2008), 1884 (2009), 1937 (2010) and 2004 (2011), 2064 (2012), 2115 (2013), 2172
(2014) and 2236 (2015), 2305 (2016), 2373 (2017), 2433 (2018), 2485 (2019) and
2539 (2020) as well as the statements of its President on the situation in Lebanon and
the Press statements dated 19 December 2016, 27 March 2018, 9 August 2018,
8 February 2019,
Expressing its solidarity with Lebanon and its people in the aftermath of the
explosions which struck Beirut on 4 August 2020, causing a significant number of
casualties and wounding thousands of people, including some UNIFIL personnel, and
causing severe damages to commercial and residential infrastr uctures as well as to
UNIFIL capacities, stressing the need for a swift, independent, impartial, thorough
and transparent investigation into the explosions by the Lebanese judicial system, and
welcoming the International Conference on Assistance and Suppor t to Lebanon and
Beirut, organized on the 9 August 2020 by France and the United Nations and the
follow-up International Conferences organized by France and the United Nations on
2 December 2020 and 4 August 2021, further calling the international community to
reinforce its support to Lebanon and its people in that context,
Strongly urging the Lebanese political leaders to form , without further delay
and with a sense of urgency, a new Government which can respond to the needs and
aspirations of the Lebanese population and the current main challenges Lebanon is
facing, in particular the reconstruction of Beirut, the COVID-19 pandemic, and the
implementation of reforms, which are absolutely necessary to overcome and recover
from the current and unprecedented acute social, economic and humanitarian crises,
expressing grave concern about the obstacles to the political process and
implementation of the necessary reforms, and calling on the Lebanese authorities to
take all necessary steps to ensure the conduct of elections in 2022 according to the
planned schedule,
Stressing the urgent need for the Lebanese authorities to respond to the
aspirations of the Lebanese people by implementing much needed and meaningful
economic reforms, and notably the commitments made in the framework of the
CEDRE conference as well as at the International Support Group f or Lebanon

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meeting held in Paris on the 11 December 2019 and reiterating, on the basis of those
necessary reforms, support to Lebanon to help it exit the current crisi s and to address
the economic, security, humanitarian challenges, as well as the impact o f COVID-19
facing the country, and called upon the international community, including
international organizations, to do so,
Commending UNIFIL for the preventive and responsive measures taken to fight
the COVID-19 pandemic and recalling resolution 2532 and its request to the
Secretary-General to instruct peace-keeping operations to provide support, within
their mandates and capacities, to host country authorities in th eir efforts to contain
the pandemic, in particular to facilitate humanitarian access, inc luding to internally
displaced persons and refugee camps and allow for medical evacuations, as well as
its request to the Secretary-General and Member States to take all appropriate steps
to protect the safety, security and health of all UN personnel in UN peace operations,
while maintaining the continuity of operations, and to take further steps towards the
provision of training for peacekeeping personnel on issues rel ated to preventing the
spread of COVID-19,
Responding to the request of the Government of Lebanon to extend the mandate
of the United Nations Interim Force in Lebanon (UNIFIL) for a period of one year
without amendment presented in a letter from the Lebanese Foreign Minister to the
Secretary-General of 24 June 2021 and welcoming the letter from the Secretary-
General to its President of 4 August 2021 (S/2021/707) recommending this extension,
Reiterating its strong support for the territorial integrity, sovereignty and
political independence of Lebanon,
Reaffirming its commitment to the full implementation of all provisions of
resolution 1701 (2006), and aware of its responsibilities to help secure a permanent
ceasefire and a long-term solution as envisioned in the resolution,
Expressing deep concern at the continued lack of progress made towards the
establishment of a permanent ceasefire and other key provisions of resolution 1701
(2006) fifteen years after its adoption,
Calling upon all concerned parties to strengthen their efforts, including by
exploring concrete solutions with the Special Coordinator of the Secretary-General
and the UNIFIL Force Commander, to fully implement all provisions of resolution
1701 (2006) without delay,
Expressing deep concern at all violations, both by air and ground, in connection
with resolution 1701 (2006) as underlined by the Secretary-General in his reports,
and recalling the importance of control of the Government of Lebanon over all
Lebanese territory,
Underlining the risk that violations of the cessation of hostilities could lead to
a new conflict that none of the parties or the region can afford,
Urging all parties to make every effort to ensure that the cessation of hostilities
is sustained, exercise maximum calm and restraint and refrain from any action or
rhetoric that could jeopardize the cessation of hostilities or destabilize the region,
Condemning the incidents of August-September 2019 and of the 14 April 2020
of 17 April 2020, and of 27 July 2020 and of May 2021, 20 July 2021 and 4–6 August
2021 which occurred across the Blue Line, calling on the parties to resort to the
Tripartite Mechanism when such incidents occur, and further commending the liaison
and prevention role played by UNIFIL allowing for de-escalation,

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Emphasizing to all parties the importance of full compliance with the

prohibition on sales and supply of arms and related materiel established by resolution
1701 (2006),
Recalling the utmost importance that all parties concerned respect the Blue Line
in its entirety, noting with great and increasing concern that UNIFIL still has not been
able to access all relevant locations north of the Blue Line related to the discovery of
tunnels crossing the Blue Line which UNIFIL reported as a violation of resolution
1701 (2006), and urging the Lebanese authorities to urgently conclude all necessary
investigations on the matter, in line with resolution 1701 (2006),
Welcoming the continued progress in the marking of the Blue Line, and
encouraging the parties to accelerate their efforts in coordination with UNIFIL,
including through the tripartite mechanism, to continue working in the ongoing
process to delineate and visibly mark the Blue Line in its entirety, as well as to move
forward on the marking of its points of contention, as recommended by the Strategic
Review,
Condemning in the strongest terms all attempts to threaten the security and
stability of Lebanon,
Reaffirming its determination to ensure that no such acts of intimidation prevent
UNIFIL from implementing its mandate in accordance with Security Council
resolution 1701 (2006), recalling the necessity for all parties to ensure that UNIFIL
personnel are secure and their freedom of movement is fully respected and unimpeded
and continues to respect the separate, supporting mandate under which Observer
Group Lebanon operates, condemning in the strongest terms all attempts to restrict
the freedom of movement of UNIFIL’s personnel, all acts of harassment and
intimidation and all attacks against peacekeepers, including t he attacks against
UNIFIL forces on 4 August 2018 near the town of Majdal Zun, on 25 May 2020 in
the town of Belida Southern Lebanon, and on the 10 February 2020, in Brashit,
Urging the Lebanese authorities to swiftly provide UNIFIL with further updates
and finalise investigations on these matters, and welcoming the verdicts of
21 December 2020 and 24 March 2021 by Lebanon’s Military Court sentencing the
perpetrators of attacks against UNIFIL peacekeepers in 1980 and in July 2011,
Reiterating the importance of the extension of the control of the Government of
Lebanon over all Lebanese territory in accordance with the provisions of resolution
1559 (2004) and resolution 1680 (2006), and of the relevant provisions of the Taif
Accords,
Encouraging all Lebanese parties to resume discussions towards a consensus on
a National Defence Strategy as set out by the President of Lebanon and the Lebanese
Defense Minister on 29 April 2019, in accordance with relevant Security Council
resolutions and the Taif Agreement,
Welcoming progress made to implement Lebanon’s first National Action Plan
on Women, Peace and Security, and encouraging the Government of Lebanon to
continue to fully implement it, with the support of UNIFIL and women’s civil societ y
groups, as soon as possible and to ensure the full, equal, effective, and meaningful
participation of women at all levels of decision-making in all efforts for the
maintenance and promotion of peace and security, welcoming the work of UNIFIL in
this regard,
Recalling the importance of ensuring the protection of children and taking
appropriate measures in this regard, in line with relevant Security Council resolutions
on Children and armed conflict,

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Recalling the relevant principles contained in the Convention on the Safety of

United Nations and Associated Personnel,
Commending the active role and dedication of the personnel of UNIFIL and
expressing its strong appreciation to Member States that contribute to UNIFIL and
underlining the necessity that UNIFIL has at its disposal all necessary means and
equipment to carry out its mandate,
Recognizing that UNIFIL has successfully implemented its mandate since 2006
and has allowed for maintaining peace and security since then,
Recalling the request from the Government of Lebanon to deploy an
international force to assist it to exercise its authority throughout the territory, and
reaffirming UNIFIL’s authority to take all necessary action in areas of operations of
its forces and as it deems within its capabilities, to ensure that its area of operations
is not utilized for hostile activities of any kind and to resist attempts by forceful means
to prevent it from discharging its mandate,
Welcoming the crucial role played by the Lebanese Armed Forces and security
forces, as the only legitimate armed forces in Lebanon, in extending and sustaining
the authority of the Government of Lebanon, in particular in southern Lebanon, and
responding to other security challenges, including the threat of terrorism, and the
strong international commitment to support the Lebanese Armed Forces, which has
helped strengthen the capability of the Lebanese Armed Forces to provide security
for Lebanon, strongly urging further and increased international support to the
Lebanese Armed Forces in the context of the current economic crisis, and further
noting the relevance of this increased capacity in relation to their efforts to coordinate
with UNIFIL in the implementation of the UNIFIL mandate, and calling upon
Member States to urgently assist the Lebanese Armed Forces as needed to enable it
to perform its duties in line with resolution 1701 (2006),
Expressing concern about the strong negative impact of the current social,
economic and humanitarian crises on the capacities of the Lebanese A rmed Forces
and security forces and welcoming the International Conference chaired by France
and Italy in support of the Lebanese Armed Forces on 17 June 2021 with the support
of the Office of the United Nations Special Coordinator for Lebanon,
Recalling resolution 2378 (2017) and its request of the Secretary-General to
ensure that data related to the effectiveness of peacekeeping operations, including
peacekeeping performance data, is used to improve analytics and the evaluation of
mission operations, based on clear and well identified benchmarks, further recalling
resolution 2436 (2018) and its request of the Secretary-General to ensure that
decisions to recognize and incentivize outstanding performance and decisions
regarding deployment, remediation, training, withholding of financial reimbursement,
and repatriation of uniformed or dismissal of civilian personnel, are predicated on
objective performance data, and emphasizing the need to regularly evaluate UNIFIL’s
performance such that the mission retains the skills and flexibility needed to
effectively carry out its mandate,
Also recalling resolution 2242 (2015) and its request of the Secretary-General
to initiate, in collaboration with Member States, a revised strategy, within existing
resources, to double the number of women in military and police contingents of UN
peacekeeping operations,
Emphasizing the need to regularly review all peacekeeping operations to ensure
efficiency and effectiveness, including reviews of UNIFIL when appropriate, taking
into account developments on the ground,

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Bearing in mind the strategic priorities and recommendations identified by the

Secretary-General in his letter of 12 March 2012 (S/2012/151) as a result of the
Strategic Review of UNIFIL, taking note of his letter of 8 March 2017 (S/2017/202)
as a result of the most recent Strategic Review of UNIFIL, and expressing the need
for a follow-up and update,
Welcoming the Secretary-General’s 1 June 2020 Assessment of UNIFIL and
noting with appreciation the recommendations to further increase the efficiency and
effectiveness of UNIFIL,
Determining that the situation in Lebanon continues to constitute a threat to
international peace and security,
1. Decides to extend the present mandate of UNIFIL until 31 August 2022;
2. Commends the positive role of UNIFIL, whose deployment together with
the Lebanese Armed Forces has helped to establish a new strategic environment in
southern Lebanon, welcomes the expansion of coordinated activities between UNIFIL
and the Lebanese Armed Forces, and calls for further enhancement of this cooperation
without prejudice to UNIFIL’s mandate;
3. Affirms its strong continuing commitment to the existing UNIFIL mandate
and calls for the full implementation of resolution 1701 (2006);
4. Reiterates its call for Israel and Lebanon to support a permanent ceasefire
and a long-term solution based on the principles and elements set out in paragraph 8
of resolution 1701 (2006);
5. Strongly reaffirms the necessity of an effective and durable deployment of
the Lebanese Armed Forces in southern Lebanon and the territorial waters of Lebanon
at an accelerated pace to fully implement the provisions of resolution 1701 (2006)
and requests the Secretary-General to include in his future reports assessments of
progress made in this regard and calls for renewed engagement of UNIFIL and the
Lebanese Armed Forces in the Strategic Dialogue, which aims at carrying out analysis
of ground forces and maritime assets and setting a series of benchmarks reflecting the
correlation between the capacities and responsibilities of UNIFIL vis-à-vis those of
the Lebanese Armed Forces;
6. Recalls its request for precise timelines to be jointly and promptly
elaborated by the Lebanese Armed Forces and the Secretary-General, for the
deployments in paragraph 5, with a view to identifying Lebanese Armed Forces
progress in implementing tasks mandated in resolution 1701 (2006);
7. Reiterates its call for the Government of Lebanon to present a plan to
increase its naval capabilities as soon as possible, including with appropriate support
from the international community, with the goal of ultimately decreasing UNIFIL’s
Maritime Taskforce and transitioning its responsibilities to the Lebanese Armed
Forces (LAF), in close conjunction with the effectiv e build-up of the capabilities of
the Lebanese Navy, takes note in that regard of the letter dated 12 March 2019 to the
United Nations outlining the commitment of the Government of Lebanon and
welcomes its ongoing efforts towards that goal; takes note of the impact of the Beirut
explosions on 4 August 2020 on the operations of the LAF;
8. Welcomes the report of the Secretary-General on the assessment of the
continued relevance of UNIFIL’s resources and options for improving the efficiency
and effectiveness between UNIFIL and UNSCOL, taking into consideration the troop
ceiling and the civilian component of UNIFIL (S/2020/473) and requests the
Secretary-General to continue the implementation of his detailed plan, with timelines
and specific modalities, in full and close consultation with the parties, including
Lebanon, the troop-contributing countries and the Members of the Security Council,

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to implement recommendations, as appropriate, and further requests him to

periodically update the Security Council on this process;
9. Reiterates its encouragement of the intention of the Government of
Lebanon to deploy a model regiment and an offshore patrol vessel in UNIFIL’s area
of operations to advance the implementation of resolution 1701 (2006) and the
authority of the Lebanese State, recalls in this regard the joint statement issued at the
end of the 15 March 2018 Rome Conference, in particular Lebanon’s concept for a
new Model Regiment proposed in the context of the ongoing Strategic Dialogue
between the LAF and UNIFIL, notes Lebanon’s proposed timeline for the deployment
of the Model Regiment, and calls on the Lebanese Armed Forces and UNIFIL to
strengthen their coordinated actions;
10. Strongly urges further and increased international support for the Lebanese
Armed Forces and all state security institutions, which are the only legitimate armed
forces of Lebanon, in response to the capabilities development plan of the Lebanese
Armed Forces, as well as in the framework of the International Support Group for
Lebanon, through additional and expedited assistance in areas where the Lebanese
Armed Forces are most critically in need of support, including daily logistical needs
and maintenance, counter-terrorism, border protection and naval capacity;
11. Further requests UNIFIL, in line with resolution 1701, to take temporary
and special measures, that should not be considered as a precedent in the future, to
support and assist the Lebanese Armed Forces with the provision of relevant
additional non-lethal material (fuel, food and medicine) and logistical support for a
limited period of 6 months, within the existing resources and without implications to
the increase of the budget level, in the framework of the LAF -UNIFIL joint activities
and in compliance with the United Nations Human Rights Due Diligence Policy, and
without prejudice to the mandate and its implementation, the concept of operations
and rules of engagement of UNIFIL, while fully respecting Lebanese sovereignty and
at the request of the Lebanese authorities, and that such support be subject to
appropriate and immediate oversight and scrutiny;
12. Condemns all violations of the Blue Line, both by air and ground, and
strongly calls upon all parties to respect the cessation of hostilities, to prevent any
violation of the Blue Line and to respect it in its entirety, and to cooperate fully with
the United Nations and UNIFIL;
13. Welcomes the constructive role played by the Tripartite Mechanism in
facilitating coordination and in de-escalating tensions, and recognizes the mission
leadership’s active efforts, which has helped to further stabilize the situation along
the Blue Line and build trust between the parties, expresses in this regard strong
support for the continued efforts of UNIFIL to engage with both parties to facilitate
liaison, coordination, and practical arrangements on the ground and to continue to
ensure that the Tripartite Mechanism enables the parties to discuss a wider range of
issues, and encourages UNIFIL, in close coordination with the parties, to implement
measures to further reinforce the capacities of the Tripartite mechanism, including the
creation of additional ad hoc sub-committees, as recommended in the assessment
report of the Secretary-General, urges the parties to make a systematic, constructive
and expanded use of the Tripartite mechanism, including the sub-committee on the
marking of the Blue Line and additional ad hoc sub-committees;
14. Stresses the need to foster enhanced cooperation between UNIFIL and the
Office of the United Nations Special Coordinator for Lebanon (UNSCOL), with the
goal of improving the effectiveness and efficiency of the missions, welcomes in this
regard the improvements accomplished by the United Nations in terms of efficiencies
and effectiveness between UNIFIL and UNSCOL and encourages the Secretary-
General to further these efforts;

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15. Urges all parties to abide scrupulously by their obligation to respect the
safety of UNIFIL and other United Nations personnel, calls on them to take all
appropriate measures to enhance the safety and security of United Nations personnel
and equipment, and reiterates its call for closer cooperation between UNIFIL and the
Lebanese Armed Forces in particular regarding coordinated and adjacent patrols,
welcomes the commitment of the Lebanese authorities to pro tect UNIFIL movements
and reiterates its call for the rapid finalization of the investigation launched by
Lebanon regarding all attacks against UNIFIL and its personnel, in particular the
incidents of 4 August 2018, and 10 February 2020, in order to swiftl y bring to justice
the perpetrators of these attacks; and requests the Secretary-General to report to the
Council, within a reasonable timeframe, when such incidents occur as well as, when
appropriate, on the follow-up of the related pending investigations;
16. Urges all parties to ensure that the freedom of movement of UNIFIL in all
its operations and UNIFIL’s access to the Blue Line in all its parts is fully respected
and unimpeded, in conformity with its mandate and its rules of engagement, including
by avoiding any course of action which endangers United Nations personnel,
condemns in the strongest terms all attempts to restrict the freedom of movement of
UNIFIL’s personnel and all attacks on UNIFIL personnel and equipment as well as
acts of harassment and intimidation of UNIFIL personnel; calls on the Government
of Lebanon to facilitate UNIFIL’s prompt and full access to sites requested by UNIFIL
for the purpose of swift investigation, including all relevant locations north of the
Blue Line related to the discovery of tunnels crossing the Blue Line which UNIFIL
reported as a violation of resolution 1701 (2006), in line with resolution 1701, while
respecting the Lebanese Sovereignty;
17. Requests the Secretary-General to continue to take all appropriate
measures to review and enhance the safety and security of peacekeeping personnel of
UNIFIL, in line with resolution 2518 (2020) and other relevant Security Council
resolutions;
18. Urges all parties to cooperate fully with the Security Council and the
Secretary-General to make tangible progress towards a permanent ceasefire and a
long-term solution as envisioned in resolution 1701 (2006) and on all outstanding
issues in the implementation of Security Council resolutions 1701 (2006), 1680
(2006) and 1559 (2004), and other relevant Security Council resolutions;
19. Urges the Government of Israel to expedite the withdrawal of its army
from northern Ghajar without further delay in coordination with UNIFIL, which has
actively engaged Israel and Lebanon to facilitate such a withdrawal;
20. Reaffirms its call on all States to fully support and respect the establishment
between the Blue Line and the Litani River of an area free of any armed personnel,
assets and weapons other than those of the Government of Lebanon and UNIFIL;
21. Recalls paragraph 15 of resolution 1701 (2006) according to which all
States shall take the necessary measures to prevent, by their nationals or from their
territories or using flag vessels or aircraft, the sale or supply of arms and related
materiel to any entity or individual in Lebanon other than those authorized by the
Government of Lebanon or UNIFIL;
22. Acting in support of a request from the Government of Lebanon to deploy
an international force to assist it to exercise its authority throughout the territory,
recalls its authorization to UNIFIL to take all necessary action in areas of deployment
of its forces and as it deems within its capabilities, to ensure that its area of operations
is not utilized for hostile activities of any kind, to resist attempts by forceful means
to prevent it from discharging its duties under the mandate of the Security Council,
and to protect United Nations personnel, facilities, installations and equipment,

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ensure the security and freedom of movement of United Nations personnel,

humanitarian workers and, without prejudice to the responsibility of the Government
of Lebanon, to protect civilians under imminent threat of physical violence;
23. Commends UNIFIL’s operational changes in line with resolution 2373
(2017) and resolution 2433 (2018) and reiterates its request that the Secretary-
General look at ways to enhance UNIFIL’s efforts as regards paragraph 12 of
resolution 1701 (2006) and paragraph 14 of this resolution, including ways to increase
UNIFIL’s visible presence, including through patrols a nd inspections, within its
existing mandate and capabilities;
24. Recalls the decision that UNIFIL shall assist the government of Lebanon,
at its request, as set out in paragraph 14 of resolution 1701 (2006) and within its
capabilities, to implement resolution 1701 (2006);
25. Welcomes the efforts being undertaken by UNIFIL to implement the
Secretary-General’s zero-tolerance policy on sexual exploitation and abuse and to
ensure full compliance of its personnel with the United Nations code of conduct,
requests the Secretary-General to continue to take necessary measures to ensure full
compliance of all personnel, civilian and uniformed, in UNIFIL with the United
Nations zero-tolerance policy on sexual exploitation and abuse and to keep the
Security Council fully informed about the Mission’s progress in this regard, stresses
the need to prevent such exploitation and abuse and to improve how allegations are
addressed in line with its resolution 2272 (2016), and urges troop-contributing
countries to continue taking appropriate preventative action, including vetting of all
personnel, pre-deployment and in-mission awareness training, and to take appropriate
steps to ensure full accountability in cases of such conduct involving their personnel,
including through timely investigations of allegations, as appropriate, and to hold
perpetrators accountable and repatriate units when there is credible evidence of
widespread or systemic sexual exploitation and abuse by those units;
26. Requests UNIFIL to take fully into account gender considerations as a
cross-cutting issue throughout its mandate and to assist the Lebanese authorities in
ensuring the full, equal, effective and meaningful participation, involvement and
representation of women at all levels of decision -making in all efforts for the
maintenance and promotion of peace and security, including in the security sector, as
well as to support the implementation of the action plan on Women and Peace and
Security, including to prevent and respond to sexual and gen der based violence,
further requests enhanced reporting by UNIFIL to the Security Council on this issue;
27. Requests the Secretary-General and the troop-contributing countries to
seek to increase the number of women in UNIFIL, as well as to ensure the fu ll,
effective and meaningful participation of women in all aspects of operations and to
implement relevant provisions of resolution 2538 (2020) in this regard;
28. Requests the Secretary-General, in the planning and conduct of UNIFIL’s
operations, to implement peacekeeping performance requirements under resolutions
2378 (2017) and 2436 (2018);
29. Requests the Secretary-General to continue to report to the Council on the
implementation of resolution 1701 (2006), every four months, or at any time as he
deems appropriate, and to include in his reporting a prompt and detailed breakdown
of all resolution 1701 (2006) violations, clarifications by the parties and updates on
all pending investigations into such violations of resolution 1701, prompt and detailed
reports on violations of the sovereignty of Lebanon, prompt and detailed reports on
the restrictions to UNIFIL’s freedom of movement, an enhanced annex on the
implementation on the arms embargo, reports on specific areas where UNIFIL does
not access and on the reasons behind these restrictions, potential risks to the cessation

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of hostilities and UNIFIL’s response as well as reports on progress made as regards

the detailed plan on the implementation of the 1 June assessment report as s et out in
paragraph 8 of the present resolution and on additional identified efficiencies to most
appropriately fulfil its mandated tasks; requests the Secretary-General to continue to
provide concrete and detailed information on the aforementioned issues to the
Council, in line with changes to enhance reporting since the adoption of resolution
2373 (2017), 2433 (2018), 2485 (2019) and 2539 (2020);
30. Stresses the importance of, and the need to achieve, a comprehensive, just
and lasting peace in the Middle East, based on all its relev ant resolutions including
its resolutions 242 (1967) of 22 November 1967, 338 (1973) of 22 October 1973,
1515 (2003) of 19 November 2003 and 1850 (2008) of 16 December 2008;
31. Decides to remain actively seized of the matter.

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