Security Council Resolution 2806 (2025) [on Degrading the Threat Posed by Al-Shabaab and Extension of the Mandate of the Panel of Experts on Somalia Until 31 Dec. 2026]

S/RES/2806(2025)View PDF

Who created this mandate?

Under agenda item 84Peace and security in Africa, published in 2025.

Who cites this mandate in the budget?

1 entity

A dot marks an entity citing this document in its “Mandates and background” narrative rather than only its Legislative mandates list. Many do both.

Extracted automatically from each entity’s budget submission.

What subjects does this mandate have?

13 topics

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

What does this mandate say?

53 operative paragraphs

Degrading the threat posed by Al-Shabaab, and the Arms Embargo targeting 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);

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);

B.Arms embargo targeting Al-Shabaab

Recalls that all Member States shall take the necessary measures to prevent the direct or indirect supply, sale or transfer of weapons and military equipment and the direct or indirect supply of technical assistance or training, financial and other assistance including investment, brokering or other financial services, related to military activities or to the supply, sale, transfer, manufacture, maintenance or use of weapons and military equipment, to Al-Shabaab, as an entity designated pursuant to paragraph 1 of this resolution by the Committee pursuant to resolution 2713 (2023) concerning Al-Shabaab (Committee);

Welcomes the launch of the updated Weapons and Ammunition Management Strategy of the Federal Republic of Somalia 2025-2030, and further notes the GFRS’s commitment to enact laws, regulations and administrative procedures to exercise effective control over the export, import, transit, re-transfer and brokering in conventional weapons and explosives in order to prevent illicit trafficking and diversion, including the establishment of criminal offences to deter and prosecute violations;

Notes paragraphs 36 to 45 and 48 of this resolution, which currently impose additional controls to prevent Al-Shabaab from gaining access to weapons, ammunition and military equipment as well as measures pertaining to the FMS, expresses its intention to review these measures, informed by the reporting requested in paragraphs 50 and 51 of this resolution, and, upon its assessment that the laws, regulations and administrative procedures referred to in paragraph 4 of this resolution have been established, to, as appropriate, lift the measures in paragraphs 36 to 45 and 48 of this resolution, and stresses the importance of ensuring any such decision supports the objective of preventing all terrorist groups from gaining access to weapons, ammunition and military equipment;

Stresses that deliveries of all weapons, ammunition and military equipment to FMS may only be provided in coordination with and with prior notification to the GFRS, through the CMD to allow for appropriate review and consideration, in line with the relevant procedures set out in paragraphs 41 to 44 of this resolution, and notes the CMD’s role as the focal point for the GFRS on weapons and ammunition management;

Welcomes the technical assessment regarding the arms embargo targeting Al-Shabaab (S/2025/673), commends Somalia for the progress made on the management, registration and documentation of weapons, ammunition, and military equipment, the transfer of arms and regulations related to arms control, and efforts to reduce the threat posed by Improvised Explosive Devices, endorses the technical assessment’s recommendations, within existing resources and AUSSOM’s existing mandate, and further encourages Somalia’s international partners, in coordination with relevant international agencies, as appropriate, to support the GFRS in its efforts to:

a. implement the National Weapons and Ammunition Management strategy and the National Counter-IED strategy;

b. develop overarching legislation regulating international transfers of conventional arms;

c. enable the delivery of the Arms Disruption Cell’s objectives, including on emerging threats in arms trafficking;

d. develop procedures to better facilitate the recording of ammunition stocks in the National WAM Database;

e. develop national capacity related to maritime interdiction; and,

f. enhance national forensic investigations capacity;

Affirms that the GFRS, in cooperation with the African Union Support and Stabilisation Mission (AUSSOM), shall register all weapons, ammunition and military equipment captured or seized from Al-Shabaab in the National Captured Weapons Database and, with the assistance of the Panel as necessary, investigate their origin;

Calls on Member States to take reasonable steps to prevent smuggling of weapons and ammunition into Somalia and further calls on Member States to share data with the GFRS, through the CMD, the Committee, the Panel, AUSSOM and UNTMIS, as appropriate, regarding weapons, ammunition and military equipment captured from Al-Shabaab and the smuggling of weapons and ammunition in violation of the arms embargo targeting Al-Shabaab;

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 and implement a comprehensive and coordinated plan to disrupt Al-Shabaab’s financial 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 (AML) and countering the financing of terrorism (CFT) standards, guidance, and compliance with legal frameworks, including those pertaining to designated non-financial businesses and professions (DNFBP);

b. strengthen supervision of, and compliance with, AML and CFT regulations and standards across financial institutions and DNFBPs, including as related to Know Your Customer and customer due diligence procedures and suspicious transaction reporting in line with the Anti-Money Laundering and Countering the Financing of Terrorism Act (2016), as well as the Mobile Money Regulations (2019), Targeted Financial Sanctions Act (2023) and relevant Financial Action Task Force recommendations, and encourage collaboration with the telecoms sector to reduce the risk of exploitation of the mobile money sector by Al-Shabaab;

c. continue constructive engagement with the ongoing Middle East and North Africa Financial Action Task Force Mutual Evaluation (MENAFATF) process, including scheduling an onsite evaluation to maintain progress on priority areas relating to terrorist financing and money laundering risks;

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

e. improve monitoring, reporting and investigations into money laundering and terrorist financing, including continuing to build financial crime investigative capacity across law enforcement agencies and enhancing inter-agency coordination and collaboration; and,

f. develop a plan to mitigate the risks posed by Al-Shabaab to personnel working in AML and CFT 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;

Requests the GFRS, the Panel and relevant UN entities to continue exchanging information about Al-Shabaab’s operations and, with support from the international community, implement a comprehensive and coordinated action plan to disrupt Al-Shabaab’s operations and exploitation of the licit financial system, strengthen implementation of the draft Roadmap for Enhanced Inter-Agency Cooperation to Combat Illicit Trade and its Effects and develop a plan to disrupt all illicit trade from which Al-Shabaab profits;

Encourages continued cooperation at the regional and international level to address the threat posed by Al-Shabaab to Somalia and the region including continued support to Somalia’s efforts to address money laundering and terrorist financing risks, and further encourages international cooperation with relevant UN agencies supporting 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, reaffirms the importance of the efforts to monitor and disrupt the export and import of charcoal to and from Somalia, and encourages Somalia to continue to ensure the sustainable management of domestic charcoal production, with support from other partners, as appropriate;

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

Welcomes the GFRS’s adoption of the National Counter-IED Strategy 2025-2030 and encourages its full implementation;

Recalls that, in line with the National Counter-IED Strategy, all States shall prevent the direct or indirect sale, supply or transfer of the items in Part I of Annex B 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 exists that they may be used, in the manufacture in Somalia of improvised explosive devices;

Reaffirms that:

a. prior to transferring any items in Part I of Annex B to Somalia, the supplying Member State of the items shall notify the GFRS for its awareness;

b. where an item in Part I of Annex B is directly or indirectly sold, supplied or transferred to Somalia consistent with paragraph 18, the supplying State shall notify the GFRS for its awareness of the sale, supply or transfer no more than 15 working days after the sale, supply or transfer takes place, and that the GFRS shall subsequently notify the Committee within 15 working days, 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. specifications;

iv. quantity of the item(s); and,

v. intended storage location;

Calls upon Member States to support the GFRS in implementing appropriate legislation to regulate and monitor the import and transit of items listed in Parts I and II of Annex B;

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 B, 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, until 30 November 2026, 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, as most recently renewed by paragraph 23 of resolution 2776 (2025);

Affirms that the maritime interdiction and maritime domain awareness measures renewed by paragraph 22 of this resolution do not otherwise hinder the sovereign right of Somalia to enter into bilateral agreements with Member States on maritime security cooperation;

Encourages Member States and regional and international organisations that have the capacity to do so to support the GFRS, at its request, to:

a. strengthen its maritime domain awareness and enforcement, including in relation to the role of fishing vessels in trafficking and illicit trade and maritime movements of licit and illicit goods that lend support to Al-Shabaab; and,

b. improve law enforcement and counter-smuggling at ports, through the extension of capacity-building;

Expresses its intention to review and revise the provisions in this resolution on maritime interdictions and maritime domain awareness and take appropriate action regarding extension or modification of these provisions, no later than 30 November 2026;

G.Panel of Experts and Security Council Committee

Decides to renew, with effect from the date of adoption of this resolution until 31 December 2026, the Panel, to consist of up to 5 members, appropriately located with due consideration for mandate implementation and administrative requirements, with the following mandate:

a. to conduct the tasks referred to in paragraphs 8 and 12 of this resolution;

b. to assist the Committee in monitoring the implementation of the measures detailed in paragraphs 1, 3, 14, 17, 18, 20, 22 and 36 of this resolution, including by reporting any information on violations;

c. to give recommendations to the Committee on how to support the GFRS in reducing the smuggling of weapons and ammunition,

d. to give recommendations to the Committee on how to address sexual violence in conflict and the “six grave violations” against children as identified by the Secretary-General, in line with S/2024/751;

e. to investigate Al-Shabaab’s acquisition of components used in the manufacture of IEDs;

f. to investigate Al-Shabaab’s access to and use of weapons, ammunition and military equipment, including IEDs, and emerging threats in arms smuggling, and work closely with the Committee on recommendations for measures to improve overall compliance with this resolution;

g. to investigate, in coordination with relevant UN entities, all activities used by Al-Shabaab to generate revenues, including the use of charcoal as a revenue source;

h. to investigate the organisational structure of Al-Shabaab, including its senior leadership structures, as well as its methods of recruitment and training;

i. to include in its reports to the Committee any information relevant to the potential designation of individuals and entities pursuant to paragraph 1 of this resolution for possible future measures by the Council; and,

j. to assist the Committee in compiling narrative summaries of reasons for listing, to be made accessible on the Committee’s website, after individuals and entities designated pursuant to paragraph 1 of this resolution are added to the list;

Requests the Secretary-General to include relevant dedicated expertise on the Panel in line with paragraph 11 of resolution 2467 (2019) and further requests the Panel to apply this expertise across all aspects of its investigations and reporting;

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, and stresses the importance of the Panel carrying out their mandate in line with document S/2006/997;

Reiterates its request for Member States and AUSSOM 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, military storage facilities in SNA sectors and captured weaponry in Somali custody, and to facilitate photographs of weapons and ammunition held in Somali custody and access to logbooks and distribution records;

b. encourages the Panel to coordinate and work closely with the CMD on paragraph 29.a;

c. urges the GFRS, AUSSOM and partners to share information with the Panel regarding conduct or activities, in particular on illicit flows of finances, charcoal, weapons, ammunition and military equipment by Al-Shabaab, where covered by listing criteria for targeted sanctions;

d. encourages the Panel, with due regard for its impartiality and confidentiality obligations, to engage regularly with the GFRS, in line with document S/2006/997 and the mandate in paragraph 26 of this resolution;

e. urges the GFRS to facilitate, in support of the implementation of the Panel’s mandate, engagement between the Panel and relevant authorities, including as relates to paragraph 29.c; and,

f. encourages Member States to engage and share information with the Panel on individuals supporting Al-Shabaab through propaganda, financing, recruitment, materiel support and other means;

Encourages Somalia, Member States, and regional and subregional organisations to provide regular inputs to the Committee regarding the implementation and monitoring of the sanctions regime, and stresses that requests regarding frameworks for cooperation and engagement with the Panel should be directed to the Committee;

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), paragraph 9 of resolution 1998 (2011) and paragraph 12 of resolution 2467 (2019), and invites the Office of the United Nations High Commissioner for Human Rights to share relevant information with the GFRS and the Committee, and the Working Group on Children and Armed Conflict to communicate to the Committee pertinent information, in writing, with regard to paragraph 43 (e) of resolution 2093 (2013), 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 and relevant UN entities, as and when appropriate, including detailed investigations where relevant and one thematic report by 30 June 2026;

b. a comprehensive mid-term update; and

c. for the Security Council’s consideration through the Committee, a final report by 31 October 2026;

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

Requests the Panel to include in its reporting a specific update on Al-Shabaab’s use of charcoal as a revenue source;

Decides that briefings from the Chair of the Committee pursuant to resolution 2713 (2023) to the Security Council shall take place on an annual basis and before 30 November 2026;

Expresses its intention to review the mandate of the Panel and take appropriate action regarding any extension and modification of this mandate, no later than 30 November 2026;

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

Reaffirms paragraph 4 of resolution 2776 (2025);

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;

Emphasises Somalia’s sovereign right to govern the entry into its territory of weapons, ammunition and military equipment, consistent with this resolution, and encourages the GFRS to ensure that private security companies operating in Somalia obtain requisite approval from the GFRS before importing weapons, ammunition and military equipment;

Reaffirms that the measures referenced in paragraph 36 do 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;

Reaffirms that the measures referenced in paragraph 36 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 UNTMIS and UNSOS;

b. AUSSOM, and the Troop- and Police-Contributing Countries to AUSSOM; 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 deliveries of items in Annex A to this resolution to FMS, or to licenced private security companies operating in Somalia as defined in the list requested in paragraph 37 of this resolution, for the purpose of supporting the FMS and licensed private security companies in countering Al-Shabaab or to provide security for international and commercial premises and personnel in Somalia, may only be provided in coordination with the GFRS and in the absence of a negative decision by the Committee within five working days of receiving a notification in accordance with the process set out in paragraph 43 of this resolution;

Decides that deliveries of all weapons, ammunition and military equipment not covered by Annex A to this resolution to FMS, or to licenced private security companies operating in Somalia as defined in the list requested in paragraph 37 of this resolution, for the purpose of supporting the FMS and licensed private security companies in countering Al-Shabaab or to provide security for international and commercial premises and personnel in Somalia, may only be provided in coordination with the GFRS and are subject to notification to the Committee, for information only, at least five working days in advance in accordance with the process set out in paragraph 43 of this resolution;

Reaffirms 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, prior to delivering any weapons, ammunition and military equipment to FMS, or to licenced private security companies operating in Somalia, for the purpose of supporting the FMS and licensed private security companies in countering Al-Shabaab or to provide security for international and commercial premises and personnel in Somalia, the supplying Member State of the items shall notify the GFRS to allow for appropriate review and consideration, notes the CMD’s role as the focal point for the GFRS on weapons and ammunition management, emphasises Somalia’s sovereign right to govern the entry into its territory of weapons, ammunition and military equipment, consistent with this resolution, and affirms that the GFRS has the primary responsibility to notify the Committee pursuant to paragraphs 41 and 42, of any deliveries of weapons, ammunition and military equipment to Somalia, within five working days of receiving notification from the supplying Member State;

Reaffirms that to further avoid Al-Shabaab obtaining weapons and ammunition, weapons, ammunition and military equipment sold or supplied in accordance with paragraphs 39, 40, 41 and 42 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 subregional organisation and requests the Committee to share all notifications pertaining to paragraphs 41 and 42 submitted to the Committee with the CMD and the Office of National Security, for their information;

Requests the Committee, in cooperation with the GFRS, to develop, produce and disseminate templates for notifications to the Committee pursuant to paragraphs 18.b, 41, 42 and 44;

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;

Reaffirms that the measures referenced in paragraph 36 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 subregional 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 GFRS, following consultation through the structures of the National Security Architecture and Somali Security Development Plan, to provide to the Security Council, by 31 May 2026 and then by 31 October 2026, reports which include:

a. a description of 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;

b. 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;

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

d. 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,

e. an update on specific actions taken to counter the financing of terrorism in Somalia;

Requests the GFRS, in the second report requested in paragraph 49 of this resolution, to further include an update on implementation of the National Weapons and Ammunition Management strategy, including progress towards the establishment and implementation of the laws, regulations and administrative procedures referred to in paragraph 4 of this resolution;

Requests the Secretary-General to submit to the Security Council, by 31 October 2026, a technical assessment regarding the arms embargo targeting Al-Shabaab, in consultation with the GFRS, relevant UN entities as appropriate and other relevant stakeholders, including further updates on the key areas included in document S/2025/673, with specific recommendations as appropriate;

Requests the organisations and states listed in paragraph 40.c of this resolution, or subsequently added, to provide to the Security Council, and to the CMD and the Office of National Security, by 31 October 2026, an update on the support provided to Somalia since the adoption of this resolution and detail of the weapons, ammunition and military equipment imported in the reporting period;

Decides to remain actively seized of the matter.

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).

Improvised Explosive Devices (IED) Components

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

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;

Learning code receivers.

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