Security Council Resolution 2713 (2023) [on Degrading the Threat Posed by Al-Shabaab and Extension of the Mandate of the Panel of Experts on Somalia Until 15 Jan. 2025]

S/RES/2713 (2023)View PDF

Who adopted this document and its mandates?

A Resolution of the Security Council, under agenda item 84 Peace and security in Africa, published in 2023.

What subjects does this mandate have?

12 subjects

Arms Embargo Arms Transfers Charcoal Counter-Terrorism Military Explosives Regional Security Sanctions Sanctions Compliance Somalia Somalia Situation Terrorism Terrorism Financing

What’s in this document?

49 operative paragraphs

Degrading the threat posed by Al-Shabaab, and the Arms Embargo on Al-Shabaab

A.Targeted sanctions

Recalls its decisions in its resolution 1844 (2008), which imposed targeted sanctions, and its resolutions 2002 (2011), 2093 (2013) and 2662 (2022), which expanded the listing criteria, and recalls its decisions in resolutions 2060 (2012) and 2444 (2018);

Expresses its intention to support the further development of fair and clear procedures for the delisting of individuals and entities designated pursuant to resolution 1844 (2008) as amended;

Recalls resolution 2664 (2022), which established a cross-cutting humanitarian exemption to asset freeze measures, including those imposed by paragraph 3 of resolution 1844 (2008), supersedes and replaces the humanitarian exemption relating to Somalia in paragraph 28 of resolution 2662 (2022);

B.Arms embargo on Al-Shabaab

Decides that all States shall, for the purposes of preventing Al-Shabaab and other actors intent on undermining peace and security in Somalia and the region from obtaining weapons and ammunition, take the necessary measures to prevent all deliveries of weapons, ammunition and military equipment to Somalia, including prohibiting the financing of all acquisitions and deliveries of weapons, ammunition and military equipment, and further decides that these measures shall not apply to deliveries or supplies to the GFRS, the Somali National Army (SNA), the National Intelligence and Security Agency (NISA), the Somali National Police Force (SNPF) and the Somali Custodial Corps;

Takes note of the recent military operations against Al-Shabaab and encourages the GFRS and Somalia’s FMS and regional governments, with the support of partners as appropriate, to register all weapons, ammunition and military equipment captured or seized from Al-Shabaab and, with the assistance of the Panel as necessary, to investigate their origin;

Affirms that the GFRS, in cooperation with ATMIS, shall document and register all weapons, ammunition and military equipment, captured from Al-Shabaab as part of offensive operations, or in the course of carrying out their mandate, including:

a. recording the type, lot/batch and serial number of the weapon and/or ammunition;

b. photographing all items and relevant markings and/or headstamps;

c. facilitating inspection by the Panel of all captured weapons, ammunition and military items before their redistribution or destruction;

Calls on Member States to take reasonable steps to prevent smuggling of weapons and ammunition into Somalia;

C.Disrupting Al-Shabaab’s finances

Notes with concern Al-Shabaab’s ability to generate revenue and launder, store and transfer resources to carry out terrorism and destabilise Somalia and the region, and requests the GFRS, working with international partners as appropriate, to continue to develop a comprehensive plan to disrupt Al-Shabaab’s operations;

Calls upon the GFRS to continue working with the FMS, Somali financial authorities, private sector financial institutions and the international community to:

a. identify, assess and mitigate money laundering and terrorist financing risks by improving anti-money laundering and countering the financing of terrorism standards, legal, regulatory and institutional frameworks;

b. improve compliance, including Know Your Customer and customer due diligence procedures;

c. strengthen supervision and enforcement, in line with the Anti-Money Laundering and Countering the Financing of Terrorism Act (2016), as well as the Mobile Money Regulations (2019) and relevant Financial Action Task Force recommendations, and encourages collaboration with the telecoms sector to reduce the risk of exploitation of the mobile money sector by Al-Shabaab;

d. use Somalia’s Middle East and North Africa Financial Action Task Force Mutual Evaluation in 2024 to address priority areas relating to terrorist financing and money laundering risks;

e. prioritise the continued development of a secure and inclusive, national identification system that improves financial access while countering the financing of terrorism;

f. improve monitoring, reporting and investigations into money laundering and terrorist financing as required under the Anti-Money Laundering and Countering the Financing of Terrorism Act (2016); and,

g. develop a plan to mitigate the risks posed by Al-Shabaab to personnel working in anti-money laundering and counter terrorist financing roles within national competent authorities and the private sector, and a plan to protect those who share information relating to Al-Shabaab’s extortion tactics;

Calls upon the GFRS to improve collaboration and coordination among regulatory and law enforcement agencies and undertake coordinated and joint approaches to terrorist finance investigations and implement disruption strategies to counter-Al-Shabaab’s finances and its exploitation of the licit financial system;

Requests the GFRS, UNODC and the Panel to continue exchanging information about Al-Shabaab’s operations and to continue working with stakeholders to develop a plan to disrupt Al-Shabaab’s operations and exploitation of the licit financial system;

Notes UNODC’s coordination role in finalising and implementing the draft Roadmap for Enhanced Inter-Agency Cooperation to Combat Illicit Trade and its Effects, and encourages Somalia to work with UNODC to develop a plan to disrupt all illicit trade from which Al-Shabaab profits;

Welcomes regional and international cooperation to degrade the threat posed by Al-Shabaab, and encourages continued cooperation at the regional and international level to address the threat posed by Al-Shabaab to Somalia and the region, and encourages international cooperation with the United Nations Office of Counter-Terrorism Programme Office in Nairobi in its support for regional countries in their efforts to counter terrorism and violent extremism conducive to terrorism;

D.Charcoal Ban

Reaffirms its decision to ban the import and export of Somali charcoal, as set out in paragraph 22 of its resolution 2036 (2012), and paragraphs 11 to 21 of resolution 2182 (2014);

Welcomes measures taken by the GFRS, FMS and Member States to reduce the export of charcoal from Somalia, reiterates its requests that ATMIS support and assist Somalia in implementing the charcoal ban, and facilitate regular access for the Panel to charcoal exporting ports, and reaffirms the importance of the efforts of the UNODC and its international partners to monitor and disrupt the export and import of charcoal to and from Somalia;

Recalls paragraph 36 of resolution 2662 (2022), and welcomes the collaborative development of a plan to dispose of the charcoal stockpiles in and around Kismayo and encourages Somalia to continue to ensure the sustainable management of domestic charcoal production, with support from other partners, as appropriate;

Recalls its decision in resolution 2696 (2023) to authorise a one-off disposal of charcoal stockpiles in and around Kismayo, and requests:

a. the Panel and UNODC to continue to monitor the charcoal stockpiles and their movement to ensure the complete disposal does not trigger illicit production of charcoal; and,

b. the GFRS to continue to engage with the Committee throughout the disposal process, including sharing a final record of funds generated upon completion of the disposal process;

E.Reducing the threat posed by Improvised Explosive Devices (IEDs)

Reaffirms that all States shall prevent the direct or indirect sale, supply or transfer of the items in part I of Annex C to this resolution to Somalia from their territories or by their nationals outside their territories, or using their flag vessels or aircraft if there is sufficient evidence to demonstrate that the item(s) will be used, or a significant risk they may be used, in the manufacture in Somalia of improvised explosive devices;

Decides that:

a. prior to transferring any items in Part 1 of Annex C to Somalia, the supplying Member State of the items should notify the GFRS for its awareness;

b. where an item in part I of Annex C to this resolution is directly or indirectly sold, supplied or transferred to Somalia consistent with paragraph 19, the State shall notify the GFRS for its awareness and the Committee of the sale, supply or transfer no more than 15 working days after the sale, supply or transfer takes place, and stresses the importance that notifications pursuant to this paragraph contain all relevant information, including:

i. purpose of the use of the item(s);

ii. end user;

iii. technical specifications;

iv. quantity of the item(s); and

v. intended storage location;

Encourages the GFRS to implement appropriate legislation to regulate and monitor the import and transit of items listed in parts I and II of Annex C, and calls upon Member States to support the GFRS in this objective;

Calls upon Member States to undertake appropriate measures to promote the exercise of vigilance by their nationals, persons subject to their jurisdiction and firms incorporated in their territory or subject to their jurisdiction that are involved in the sale, supply, or transfer of explosive precursors and materials to Somalia that may be used in the manufacture of improvised explosive devices, including, among other things, items in part II of Annex C, to keep records of transactions and share information with Somalia, the Committee and the Panel regarding suspicious purchases of or enquiries into these chemicals by individuals in Somalia and to ensure that Somalia is provided with adequate financial and technical assistance to establish appropriate safeguards for the storage and distribution of materials;

Encourages international and regional partners of Somalia to implement continued specialist training of Explosive Ordnance Disposal teams and to provide appropriate equipment and coordinate support to reinforce Somali capacity in the analysis of explosives and tracing the origin and chain of custody of IEDs and their components;

F.Maritime interdiction and maritime domain awareness

Decides to renew the provisions set out in paragraphs 15 and 17 of resolution 2182 (2014), and expanded by paragraph 5 of resolution 2607 (2021) to cover IED components, until 15 December 2024;

Encourages the UNODC, within its current mandate, under the Indian Ocean Forum on Maritime Crime, to support the GFRS to counter Al-Shabaab by:

a. bringing together relevant Member States and international organisations to enhance regional cooperation on responding to illicit maritime flows and disrupt all forms of trafficking in licit and illicit goods that may finance terrorist activities;

b. supporting Somalia to improve their maritime domain awareness and enforcement, including in relation to the role of fishing vessels in trafficking and illicit trade;

c. supporting the GFRS with fisheries protection and its enforcement capability demonstrator project;

d. supporting the GFRS by extending capacity building on law enforcement and counter-smuggling at ports; and,

e. engaging with shipping association representatives to discuss possible ways to make these measures more implementable and propose recommendations in its next briefing to the Committee in 2024;

G.Panel of Experts and Security Council Committee

Decides to renew, with effect from the date of adoption of this resolution, until 15 January 2025, the Panel, to henceforth be known as the Panel of Experts pursuant to resolution 2713 (2023), and that their mandate shall include the tasks referred to in paragraph 11 of resolution 2444 (2018), paragraphs 5, 11 and 17 to this resolution, requests the Secretary-General to include dedicated gender expertise, in line with paragraph 11 of its resolution 2467 (2019) and further requests the Panel to include gender as a cross-cutting issue in its investigations and reporting, and expresses its intention to review this mandate and take appropriate action regarding any extension and modification of this mandate, no later than 15 December 2024;

Recalls the importance of full co-operation between Member States and the Panel, requests the GFRS to facilitate for the Panel interviews of suspected members of Al-Shabaab and other persons of interest held in custody, notes the importance of the Panel carrying out their mandate in line with document S/2006/997, and requests the Panel to give recommendations to the Committee on how to support the GFRS in weapons and ammunition management and reduce smuggling of weapons and ammunition, including efforts towards establishing a National Small Arms and Light Weapons Commission and address sexual violence in conflict and the “six grave violations” against children, in line with S/2023/676;

Reiterates its request for the GFRS, Somalia’s FMS and regional governments, Member States, and ATMIS to provide information to the Panel, and assist them in their investigations; and,

a. requests the GFRS to facilitate, on the basis of written requests to the GFRS by the Panel, access for the Panel to armouries, imported weapons and ammunition, military storage facilities in SNA sectors and captured weaponry in Somali custody, and to allow photographs of weapons and ammunition in Somali custody and access to logbooks and distribution records;

b. encourages the Panel to coordinate closely with the Central Monitoring Department (CMD) on 27.a;

c. urges the GFRS, FMS, ATMIS and partners to share information with the Panel regarding conduct or activities, in particular on illicit flows of finances, weapons, ammunition and military equipment by Al-Shabaab and other actors intent on undermining peace and security in Somalia and the region, where covered by listing criteria for targeted sanctions;

Requests the Special Representative of the Secretary-General for Children and Armed Conflict and the Special Representative for Sexual Violence in Conflict to share relevant information with the GFRS and the Committee in accordance with paragraph 7 of resolution 1960 (2010) and paragraph 9 of resolution 1998 (2011), and invites the Office of the United Nations High Commissioner for Human Rights to share relevant information with the GFRS and the Committee, as appropriate;

Requests the Panel to provide:

a. regular updates to the Committee, in collaboration with independent experts appointed to help the work of other sanctions committees if appropriate, including a minimum of three different thematic reports;

b. a comprehensive mid-term update; and

c. for the Security Council’s consideration through the Committee a final report by 15 October 2024;

and urges the Panel to seek feedback from the Committee on the findings of their reporting;

Requests the Emergency Relief Coordinator to provide an update on the delivery of humanitarian assistance in Somalia and any impediments to its delivery by 15 October 2024; and from UNODC, an update on its work related to this resolution by 15 October 2024;

Decides that future briefings from the Chair of the Committee to the Security Council shall take place on an annual basis to align with the latest scheduled Somalia meeting before 15 December 2024 and further decides that henceforth the Committee shall cease being described as “pursuant to resolution 751 (1992)” and instead be described as “pursuant to resolution 2713 (2023)”;

H.Preventing Al-Shabaab from accessing weapons, ammunition and military equipment

Encourages the GFRS to share with the Committee a list of licenced private security companies operating in Somalia that shall be allowed to import weapons, ammunition and military equipment required for static and mobile protection;

Affirms that paragraph 4 does not apply to supplies of weapons, ammunition or military equipment intended solely for the support of, or use by:

a. GFRS;

b. SNA;

c. NISA;

d. SNPF; and,

e. the Somali Custodial Corps;

Decides that paragraph 4 shall not apply to supplies of weapons, ammunition or military equipment intended solely for the support of, or use by:

a. United Nations personnel, including UNSOM and UNSOS;

b. ATMIS and its Troop- and Police-Contributing Countries, as well as its strategic partners who are operating solely under the latest African Union Strategic Concept of Operations and in cooperation and coordination with ATMIS; and,

c. European Union training and support activities, Türkiye, the United Kingdom of Great Britain and Northern Ireland and the United States of America, as well as any other Member State forces, with a status of forces agreement or a memorandum of understanding with the GFRS, provided that they inform the Committee, for information purposes only, about the existence of such agreements;

Decides that paragraph 4 shall not apply to supplies of weapons, ammunition or military equipment intended solely for the support of, or use by:

a. Somalia’s FMS and regional governments; or

b. licenced private security companies operating in Somalia;

except in relation to items in Annexes A and B to this resolution, which are subject to the procedures as set out in paragraphs 36 and 37 to this resolution;

Decides that deliveries of items in Annex A to this resolution to FMS and regional governments, or to licenced private security companies operating in Somalia, to provide security for international and commercial premises and personnel in Somalia, may be provided in the absence of a negative decision by the Committee within five working days of receiving a notification from the GFRS;

Decides that deliveries of items in Annex B to this resolution to FMS and regional governments, or to licenced private security companies operating in Somalia, to provide security for international and commercial premises and personnel in Somalia, are subject to notification to the Committee, for information only, at least five working days in advance by the GFRS;

Decides that all notifications should include:

a. details of the manufacturer and supplier of the weapons, ammunition and military equipment, including type, lot/batch and serial numbers;

b. a description of the arms and ammunition including the type, calibre and quantity;

c. proposed date and place of delivery; and

d. all relevant information concerning the intended destination unit, or the intended place of storage;

Decides that where paragraphs 36 or 37 apply, the GFRS shall, no later than 30 days after the delivery of weapons, ammunition and military equipment, submit to the Committee a post-delivery notification, for information only, in the form of written confirmation of the completion of any delivery, including: type, quantities, lot/batch and serial numbers for the weapons and military equipment delivered, shipping information, bill of lading, cargo manifests or packing lists, intended end-user and the specific place of storage;

Affirms that the GFRS has the primary responsibility to notify the Committee pursuant to paragraphs 36 and 37, of any deliveries of weapons, ammunition and military equipment to Somalia and stresses that all prospective suppliers of weapons and ammunition to Somalia should consult with the GFRS;

Affirms that to further avoid Al-Shabaab obtaining weapons and ammunition, weapons, ammunition and military equipment sold or supplied in accordance with paragraphs 33, 34, and 35 of this resolution shall not be resold to, transferred to, or made available for use by any individual or entity not in the service of the recipient to which it was originally sold or supplied, or the selling or supplying State or international, regional or sub-regional organisation and requests the Committee to share all notifications pertaining to paragraphs 36, 37 and 39 submitted to the Committee with the appropriate national coordinating body in Somalia, the Office of National Security, for their information;

Requests the Secretariat to support the GFRS’ dissemination efforts in relation to the control of arms, ammunition and related materiel in the local language, if necessary, within its existing resources;

Affirms its commitment to working with Somalia to ensure that the procedures set out in this resolution and Annexes A and B continue to be lifted progressively, and that it shall keep the situation under constant review and be prepared to review the appropriateness of the measures contained in this resolution, including any modification, suspension or lifting of the measures, as may be needed, in light of the progress achieved and compliance with this resolution;

Decides that paragraph 4 shall not apply to:

a. supplies of protective clothing, including flak jackets and military helmets, temporarily exported to Somalia by United Nations personnel, representatives of the media, private security contractors and humanitarian and development workers and associated personnel for their personal use only;

b. the delivery of non-lethal military equipment by States, or international, regional or sub-regional organisations intended solely for humanitarian or protective use; and

c. entry into Somali ports for temporary visits of vessels carrying weapons and military equipment for defensive purposes provided that such items remain at all times aboard such vessels;

I.Reporting

Requests the following reports to the Security Council:

a. from the GFRS, in coordination and collaboration with Somalia’s FMS and regional governments as appropriate, including thorough the structures of the National Security Architecture, and in accordance with paragraph 9 of resolution 2182 (2014) and as requested in paragraph 7 of resolution 2244 (2015), by 1 May 2024 and then by 1 October 2024, reports which includes:

i. a description of Somalia’s security and police institutions, and the status of regional and militia forces, as well as the infrastructure in place to ensure the safe storage, registration, maintenance and distribution of weapons, ammunition and military equipment, and any capacity building requirements in this regard;

ii. a description of the procedures and codes of conduct in place for the registration, distribution, use and storage of weapons, and any capacity building requirements in this regard;

iii. a consolidated list of the weapons, ammunition and military equipment imported in the reporting period, including: the manufacturer, type, calibre, and lot/batch and serial numbers;

iv. the reports of the Joint Verification Team (JVT) requested in paragraph 7 of resolution 2182 (2014) and paragraph 37 of resolution 2551 (2020);

v. an update summarising suspicious activity documented by domestic financial institutions, and investigations and actions undertaken by the Financial Reporting Centre to counter the financing of terrorism and in a manner so as to protect the confidentiality of sensitive information; and,

vi. an update on specific actions taken by Somali Government authorities to counter the financing of terrorism;

b. from the Secretary-General:

i. an update on progress against each indicator set out in the benchmarks contained with the technical assessment report (S/2022/698) by 15 October 2024, and requests that this assessment is:

extended to all regions of Somalia where practicable, with specific recommendations and benchmarks as appropriate; and,

elaborates an additional benchmark on the safe management of chemical precursors associated with IED manufacture and disposal;

c. from organisations and states listed in paragraph 34.c of this resolution, or subsequently added, by 15 November 2024, an update on the support provided to Somalia since the adoption of this resolution and a consolidated list of the weapons, ammunition and military equipment imported in the reporting period, including: the manufacturer, type, calibre, and lot/batch and serial numbers;

Encourages the Counterterrorism Committee Executive Directorate (CTED), including with initiatives such as “Tech Against Terrorism” to support the GFRS with analysis and reporting on the use of online platforms for terrorist purposes by Al-Shabaab, and work in collaboration with Member States in the region to facilitate capacity building in detecting and disrupting Al-Shabaab’s terrorist activities;

Decides to remain actively seized of the matter.

* (Not applicable to the Government of the Federal Republic of Somalia, the Somali National Army, the Somali National Intelligence and Security Agency, the Somali National Police Force and the Somali Custodial Corps).

Items subject to a no-objection process*

Surface to air missiles, including Man-Portable Air-Defence Systems (MANPADS);

Weapons with a calibre greater than 12.7 mm, and components specially designed for these, and associated ammunition;

a. Note: (This does not include shoulder fired anti-tank rocket launchers such as RPGs or LAWs (light anti-tank weapon), recoilless rifles, rifle grenades, or grenade launchers.);

Mortars with a calibre greater than 82 mm and associated ammunition;

Anti-tank guided weapons, including Anti-tank Guided Missiles (ATGMs) and ammunition and components specially designed for these items;

Charges and devices specifically designed or modified for military use; mines and related materiel; and fuses;

Weapon sights with a night vision capability, including thermal and infrared, and accessories;

Fixed wing, swivel wing, tilt rotor or tilt wing aircraft, specifically designed or modified for military use;

‘Vessels’ and amphibious vehicles specifically designed or modified for military use;

a. Note: ‘Vessel’ includes any ship, surface effect vehicle, vessel of small waterplane area or hydrofoil and the hull or part of the hull of a vessel;

Uncrewed combat aerial vehicles (listed as Category IV in the UN Register of Conventional Arms).

items requiring advance notification (for information only)*

All types of weapons with a calibre up to 12.7mm and associated ammunition;

RPG-7, LAWs (light anti-tank weapons) and recoilless rifles, and associated ammunition;

Weapon sights;

Rotor wing or helicopters specifically designed or modified for military use;

Body armour or protective garments, as follows:

a. Hard body armour plates providing ballistic protection equal to or greater than level III (NIJ 0101.06 July 2008) or national equivalents;

Ground vehicles specifically designed or modified for military use;

Communication equipment specifically designed or modified for military use.

Improvised Explosive Devices (IED) Components

Explosive materials, explosives precursors, explosive-related equipment, and related technology

* To be notified to Government of the Federal Republic of Somalia in advance of intended shipment.

Part I*

Explosive materials and precursors, as follows, and mixtures containing one or more thereof:

a. Nitrocellulose (containing more than 12.5% nitrogen w/w);

b. Trinitrophenylmethylnitramine (tetryl);

c. Nitroglycerin (except when packaged/prepared in individual medicinal doses);

d. Nitric acid;

e. Sulphuric acid;

Explosive-related goods:

a. Equipment and devices specially designed to initiate explosives by electrical or non-electrical means (e.g. firing sets, detonators, igniters, detonating chord);

b. “Technology” required for the “production” or “use” of the items listed at paragraphs 1 and 2.a;

Part II

Explosive materials, as follows, and mixtures containing one or more thereof:

a. Ammonium Nitrate Fuel Oil (ANFO);

b. Nitroglycol;

c. Pentaerythritol tetranitrate (PETN);

d. Picryl chloride;

e. 2,4,6-Trinitrotoluene (TNT);

Explosives precursors:

a. Ammonium nitrate;

b. Potassium nitrate;

c. Sodium chlorate;

Dual use items identified by the Panel:

a. Alarm systems with disturbance sensors, including motorcycle alarms;

b. Learning code receivers.