Security Council resolution 2540 (2020) [on extension of the mandate of the UN Assistance Mission in Somalia (UNSOM) until 31 Aug. 2021]
Symbol: S/RES/2540 (2020)
Date: 2020-08-28
Status: adopted
Agenda: S/75 [84] SOMALIA SITUATION
S/ X The situation in Somalia.
Subjects: UN Assistance Mission in Somalia|African Union Mission in Somalia|PEACEKEEPING OPERATIONS|PEACEBUILDING|HUMAN RIGHTS|SECURITY SECTOR REFORM|SOMALIA|SOMALIA SITUATION
Votes in favour: 15
Votes against: 0
Abstentions: 0
Voting record:
country: BELGIUM
vote: yes
country: CHINA
vote: yes
country: DOMINICAN REPUBLIC
vote: yes
country: ESTONIA
vote: yes
country: FRANCE
vote: yes
country: GERMANY
vote: yes
country: INDONESIA
vote: yes
country: NIGER
vote: yes
country: RUSSIAN FEDERATION
vote: yes
country: SAINT VINCENT AND THE GRENADINES
vote: yes
country: SOUTH AFRICA
vote: yes
country: TUNISIA
vote: yes
country: UNITED KINGDOM
vote: yes
country: UNITED STATES
vote: yes
country: VIET NAM
vote: yes

               United Nations                                                                   S/RES/2540 (2020)
               Security Council                                                  Distr.: General
                                                                                 28 August 2020




               Resolution 2540 (2020)
               Adopted by the Security Council on 28 August 2020

                    The Security Council,
                    Recalling its previous resolutions and statements of its President on the situation
               in Somalia,
                    Reaffirming its respect for the sovereignty, territorial integrity, political
               independence, and unity of Somalia, and underscoring the importance of working to
               prevent the destabilising effects of regional disputes from spilling over into Somalia,
                     Expressing serious concern at the ongoing threat posed by Al-Shabaab, as well
               as the presence of affiliates linked to Islamic State in Iraq and the Levant (ISIL, also
               known as Da’esh), condemning the attacks by Al-Shabaab in Somalia and the region,
               including the attack on 28 December 2019 which killed over 90 people and injured
               over 140, expressing concern at the increase in the use of Improvised Explosive
               Devices (IEDs), and reiterating its determination to support comprehensive efforts to
               reduce the threat posed by Al-Shabaab in Somalia,
                     Paying tribute to the bravery and sacrifices made by the Somali security forces
               and African Union Mission in Somalia (AMISOM) and in the fight against
               Al-Shabaab, commending the contribution of AMISOM to building lasting peace and
               stability in Somalia, recognising that security provided by AMISOM continues to
               make a significant contribution, and further recognising the need to make
               international support for Somali security efforts more efficient and effective,
               particularly ahead of the Somali security institutions and forces taking the lead on
               security in 2021,
                     Emphasising the essential role of the United Nations Assistance Mission in
               Somalia (UNSOM) in supporting the Federal Government of Somalia (FGS) and its
               Federal Member States (FMS) through the provision of strategic advice and good
               offices, capacity building, and the coordination of international partners’ support,
               including with respect to elections support, underscoring that this mandate is
               complementary to the mandates of AMISOM, the United Nations Country Team and
               support provided by other international partners, and underlining the importance of
               coordination among international partners,
                    Expressing its full support for the Special Representative of the Secretary -
               General and head of UNSOM, and for the Special Representative of the Chairperson
               of the African Union Commission for Somalia and Head of AMISOM, and




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               encouraging efforts to further strengthen relations between the FGS and the United
               Nations,
                     Welcoming Somalia’s attainment of the decision point under the Heavily
               Indebted Poor Countries Initiative on 25 March 2020, further welcoming Somalia’s
               economic and financial reforms and the development of its ninth National
               Development Plan which have underpinned this, including FGS -FMS cooperation,
               and recalling that further collaboration on political, security, development and
               economic reforms will be essential to meet the Heavily Indebted Poor Countries
               Initiative Completion Point,
                     Emphasising the importance of a comprehensive approach to peacebuilding and
               sustaining peace in Somalia, particularly through the prevention of conflict,
               addressing root causes at all stages of conflict, and undertaking political, economic
               and security reforms, and promoting social development,
                      Further welcoming commitments made by Somali stakeholders at the 2019
               Somalia Partnership Forum to accelerate security sector, economic and political
               reforms, in particular commitments to deepen federalism and conduct elections in
               2020/2021 that are free, fair, credible and, welcoming also recent dialogue between
               the FGS and FMS, reiterating that elections, which are to be held in 2020/2021,
               should be transparent and inclusive, held in accordance with the Provisional Federal
               Constitution of Somalia and taking fully into account the recommendations of the
               National Independent Electoral Commission (NIEC) and relevant parliamentary
               legislation, and be underpinned by broad based consensus involving all relevant
               stakeholders including the FGS, FMS and Parliament, underscoring the importance
               of a timely and inclusive electoral process for Somalia’s political stability, and further
               reiterating its expectation that future elections in Somalia ensure the representation
               of all Somalis, in line with long-standing commitments to conduct one-person-onevote elections,
                     Welcoming progress made in recent meetings between the FGS and FMS,
               emphasising the urgency of full cooperation between the FGS and all FMS, noting
               the responsibilities of all parties to improve cooperation and engage in discussions
               led by the FGS in Dhusamareb, and underlining of the importance of cooperation and
               consensus for further progress on key national priorities, including the
               implementation of the National Security Architecture, agreement on a federated
               justice system, power and resource-sharing, the constitutional review, fiscal
               federalism, and the planning and holding of national elections,
                     Welcoming also the enactment in February 2020 of the Electoral Law, which
               represents a significant step forward, and the resolution of key outstanding issues by
               the Somali Federal Parliament, in collaboration with the NIEC, including the
               definition of constituencies, allocation of seats to constituencies, implementation of
               the 30 percent quota of seats for women to which Somalia has committed and
               representation of Benadir and “Somaliland”, and noting the importance of timely
               donor support once an implementable, affordable and democratic electoral model has
               been agreed,
                     Further reaffirming the importance of inclusive politics and democratic
               elections in ensuring long-term peace and stability in Somalia, underlining the need
               for swift implementation of the jointly agreed Mutual Accountability Framework,
               including the political, economic and security milestones, and recognising that the
               FGS has the primary responsibility to deliver Somalia’s commitments in close
               cooperation with FMS,
                    Expressing concern about delays in consolidating Somalia’s federal system and
               underscoring the importance of progress on key priorities, including power and


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           resource-sharing, shared responsibilities for security, the constitutional review and
           fiscal federalism, all of which require political agreements that can form the basis for
           legislation in the Federal Parliament,
                 Recognising reconciliation efforts in Galmudug, reaffirming the importance of
           continued peace and reconciliation in Jubaland, underlining the importance of
           dialogue and local reconciliation processes to stability in Somalia, and further
           reaffirming the importance of leadership from the FGS and engagement by the FMS
           in de-escalating tensions and engaging in constructive dialogue,
                Welcoming the direct talks between the leaders of Somalia and “Somaliland” in
           Djibouti from June 12–15, and encouraging additional technical and political
           discussions between the parties to build confidence and strengthen political
           coordination,
                 Welcoming an increased focus on the need to revitalise the high-level meetings
           of the Comprehensive Approach to Security through the newly established Security
           and Justice Committee progress on security sector reforms, including on electronic
           payment of the security forces, human resource management, progress in
           implementing the New Police Model, and initial progress in conducting operations
           against Al-Shabaab in Lower Shabelle, expressing its concern that there have been
           further delays to the implementation of the National S ecurity Architecture, the
           delivery of the Somali-led Transition Plan, which the FGS has committed to updating
           by the end of September 2020, the generation of able, affordable, accountable and
           Somali forces, and the integration of regional forces in the fed eral armed forces,
           further expressing concern over the implications of the lack of political dialogue and
           rising tensions between the FGS and some of the FMS in delaying a range of security
           reforms, and underlining the need to accelerate implementation of security sector
           reforms,
                 Reiterating the need for coordinated engagement among all actors towards
           transition to Somali security leadership during 2021, in line with resolution 2520
           (2020), the African Union Mission in Somalia (AMISOM) Strategic Concept of
           Operations 2018–2021, and the aims set out in the Somali-led Transition Plan, and
           emphasising in this regard the importance of the independent assessment with a view
           to presenting options to the Security Council on international engagement in security
           arrangements in Somalia post-2021, including the role of the UN, in particular that of
           UNSOM, AU and international partners, as mandated in its resolution 2520 (2020),
           and the need for inclusive discussions with all relevant actors,
                 Expressing grave concern at ongoing humanitarian crises in Somalia as a result
           of the protracted conflict and recurring events including drought, flooding and the
           locust infestation, recognising that the COVID-19 pandemic presents an additional
           and profound challenge to Somalia’s health system, socio-economic and humanitarian
           situation, as well as social cohesion due to increased stigmatisation, expressing
           further concern at the number of Somali refugees and increasing number of internally
           displaced persons (IDPs), as well as their increasing humanitarian and protection
           needs, welcoming the FGS’s recent ratification of the African Union Convention for
           the Protection and Assistance of IDPs in Africa (the Kampala Convention), calling on
           the FGS to fully implement its provisions and to make progress on its commitment to
           deliver durable solutions for displaced persons in Somalia, reaffirming its strong
           condemnation of the deliberate targeting of civilians, including humanitarian
           personnel, and civilian objects in situations of armed conflict, as well as the
           indiscriminate use of weapons in populated areas and their consequences for the
           civilian population, calling upon all parties to the conflict in Somalia to refrain from
           such practices in accordance with their obligations under international law,
           welcoming the efforts by the FGS, FMS, the United Nations, and the response and

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               generous support by donors, encouraging further cooperation with international and
               national humanitarian actors to relieve immediate need, and underlining the need for
               greater and diverse investment in resilience, including for IDPs, in order to reduce
               long term need and support Somalia to achieve sustainabl e development,
                     Condemning continued violations of international humanitarian law and
               violations and abuses of human rights, expressing deep concern in particular at
               violations and abuses committed against children and those involving sexual and
               gender-based violence in conflict and post-conflict situations, recognising that
               women and girls are disproportionately affected by these violations and abuses in
               Somalia, recalling the 2020 Conclusions on Children and Armed Conflict
               (S/2020/174), resolution 1325 (2000) and all subsequent resolutions on Women,
               Peace and Security, encouraging the swift enactment of the Somali Child Rights Act,
               underscoring the need to respect, protect and promote human rights, end impunity,
               and hold accountable those responsible for violations or abuses of human rights and
               violations of international humanitarian law, and reaffirming its support for the United
               Nations’ zero tolerance policy on sexual exploitation and abuse,
                     Recalling resolution 2532 (2020) demanding a general and immediate cessation
               of hostilities in all situations on the Council’s agenda, as well as calling upo n all
               parties to armed conflicts to engage immediately in a durable humanitarian pause for
               at least 90 consecutive days, in order to enable the safe, timely, unhindered and
               sustained delivery of humanitarian assistance in accordance with the humanitarian
               principles of humanity, neutrality, impartiality and independence,
                     Expressing deep concern about the serious humanitarian threat posed to
               civilians by landmines, explosive remnants of war (ERW) and IEDs in Somalia, which
               causes serious social and economic consequences for the population of Somalia, and
               of personnel participating in law enforcement, humanitarian, peacekeeping,
               rehabilitation and clearance programmes and operations, recognising that mine action
               contributes to the protection of civilians and supports stabilization and peacebuilding
               efforts, and underlining the need to accelerate capacity-building measures that aim to
               strengthen capacities to mitigate against the threat of landmines, ERW and IEDs in
               Somalia,
                     Further recognising the adverse effects of climate change, other ecological
               changes, natural disasters, among other factors, on the stability of Somalia, including
               through drought, desertification, land degradation and food insecurity, and recalling
               its Presidential Statement S/PRST/2011/15,
                    1.   Decides to extend until 31 August 2021 UNSOM’s mandate as set out in
               paragraph 1 of resolution 2158 (2014);
                     2.   Strongly condemns continued attacks by the terrorist group Al-Shabaab,
               including attacks in the region, on the United Nations Compound in Mogadishu and
               AMISOM facilities, and urges the FGS, AMISOM and the United Nations to work
               closely on strengthening safety and security for the United Nations and AU facilities
               and staff;
                     3.   Requests UNSOM to maintain and strengthen its presence in all of the
               FMS, subject to United Nations security requirements and as the security situation
               allows, welcomes the strong relationship between UNSOM, the United Nations
               Support Office in Somalia (UNSOS), the United Nations Country Team and
               AMISOM, and underlines the importance of all entities continuing to strengthen the
               relationship further at all levels, including through the Senior Leade rship
               Coordination Forum;
                     4.   Expresses its deep appreciation for UNSOM’s support to the FGS as set
               out in paragraph 1 of its resolution 2158 (2014), in particular with regard to the

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           development of inclusive politics and preparations for the elections in 2021, the
           constitutional review process, mediation, prevention and resolution of conflicts, the
           development of a federated police and justice system, strengthening the rule of law
           and security sector reform, and coordinating capacity-building support on anticorruption issues;
                 5.   Further decides that UNSOM should continue to coordinate UN efforts,
           in full cooperation with the FGS and FMS, with a particular focus on the following
           tasks:
                (a) provide support to the FGS and the FMS to accelerate Somali
           Government-led, inclusive politics, and reach political agreement, in order to deliver
           shared political and security commitments, through inclusive regular high -level
           dialogue at all levels between the FGS and all FMS;
                 (b) provide support to efforts undertaken by the FGS and the FMS to pursue
           inter- and intra-clan reconciliation at the local, regional and national level, including
           efforts in Galmudug and Jubaland, as the basis for long-term stability in Somalia, and
           provide support to efforts to strengthen the dialogue between the FGS and
           “Somaliland”;
                 (c) provide support, through the exercise of its good offices and through
           technical, operational and logistical assistance to the FGS, the Somali Parliament, the
           NIEC, and any other stakeholders with an agreed role in election delivery, in
           collaboration with UNSOS, for the delivery of elections which are free, fair, timely,
           peaceful, transparent, credible and inclusive, incorporating a direct voting component
           enabling as many citizens as possible to vote in 2020/2021, in accordance with the
           Provisional Federal Constitution of Somalia, and taking fully into account the
           perspectives of relevant stakeholders, with a particular focus on supporting the NIEC
           at national level and in the FMS, along with local stakeholders to fulfil its independent
           constitutional mandate to implement elections as agreed by relevant stakeholders,
           continue to support efforts to make progress towards the objective of universal
           elections, and support strengthened coordination of international electoral support to
           Somalia;
                 (d) provide technical advice and capacity-building to support the FGS in its
           efforts to enable the full, equal and meaningful participation of all Somalis, including
           women, youth, minority clans, persons with disabilities, IDPs and Somali refugees in
           reconciliation efforts, conflict resolution, peacebuilding and elections, including
           supporting Somali commitments to ensure that women fill at least 30 percent of the
           seats in both Houses of Parliament, and increasing participation and empowerment of
           women, minority communities and other marginalised groups at all decision -making
           levels;
                 (e) provide support to the FGS and the FMS to accelerate implementation of
           key security sector reforms, in conjunction with international partners, AMISOM and
           UNSOS, including a coherent National Security Architecture with a military and
           civilian component, delivery of the Somali-led Transition Plan, agreement on a
           federated justice and corrections model, the establishment and strengthening of
           effective, accountable and constitutional rule of law institutions;
                 (f) provide coordination and strategic advice to improve the operation of the
           Comprehensive Approach to Security and collaboration between the FGS and
           international partners, as agreed in the Security Pact at the 2017 London Somalia
           Conference;
                (g) provide support to United Nations entities to ensure system -wide
           implementation of the Human Rights Due Diligence Policy across all United Natio ns
           support to AMISOM and the Somali security sector, to include a strong focus on

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               strengthening engagement with the Government, including on implementation of
               mitigation, compliance and accountability measures;
                     (h) provide technical advice and capacity-building support to the
               establishment of the National Human Rights Commission and to the FGS, in
               particular the Ministry for Women and Human Rights Development, to promote and
               protect human rights in Somalia, including to protect women and girls from sexual
               and gender based violence, to promote accountability for human rights violations and
               abuses, including through working with civil society, reinforcing and aligning human
               rights efforts across security-related and humanitarian agendas, and monitor and
               include information on the human rights situation in the Secretary-General’s reporting
               in accordance with paragraph 16;
                    (i) provide support, within its mandate and existing resources, to the FGS in
               the implementation of the 2019 Mutual Accountability Framewor k (MAF) for
               Somalia;
                     (j) provide support to the FGS to implement Somalia’s National Strategy and
               Action Plan for Preventing and Countering Violent Extremism, in order to strengthen
               Somalia’s capacity to prevent and counter terrorism, including Somalia’s c apacity to
               address conditions conducive to the spread of terrorism, in compliance with Somalia’s
               obligations under international law, including international humanitarian law,
               international human rights law and international refugee law, and provide suppor t to
               Somalia’s efforts to become a state party to the international counter-terrorism
               conventions and protocols;
                    (k) provide support and strategic policy advice to bolster the FGS’s ability to
               deliver services and attract investment, and help the FGS to e stablish frameworks for
               managing resources and power sharing, in order to enable Somalia to strengthen
               revenue mobilisation, resource allocation, budget execution, and anti -corruption
               measures, as set out in the New Partnership for Somalia;
                     (l) support Somalia’s efforts to advance 2030 Agenda for Sustainable
               Development, working closely with the United Nations Country Team, provide
               strategic advice to institutional capacity building in line with the Somalia National
               Development Plan, collaborate with the international financial institutions to support
               the mobilisation of economic and development assistance, and ensure effective and
               integrated cooperation of United Nations agencies, funds and programmes and
               promote cooperation with relevant partners, with a view to making maximum use of
               development financing in Somalia, including in response to flooding, locusts and the
               COVID-19 pandemic;
                     6.   Calls upon the FGS and the FMS to enhance as a matter of urgency broad -
               based consultations and consensus building through consultative mechanisms at all
               levels and with the two Houses of Parliament on key national priorities, including the
               implementation of the National Security Architecture, the delivery of the Somali-led
               Transition Plan, delivery of further economic reforms, the review of the Constitution,
               and implementation of timely elections;
                     7.    Urges the Somali authorities to create a conducive political and security
               climate for inclusive elections across Somalia and at all levels to foster political
               pluralism, ensure political space for the role, rights and responsibilities of legally
               constituted political parties, including opposition parties, uphold the righ ts of
               freedom of expression, association, peaceful assembly and movement, including the
               ability of independent journalists to freely operate, and condemn hate speech and
               incitement to violence, and calls upon all FMS to allow the NIEC to operate freely in
               each FMS to the extent required to deliver an agreed electoral model;



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                8.     Expresses its concern about all violations of international humanitarian
           law and violations and abuses of human rights, including those involving sexual and
           gender-based violence in conflict, further calls upon all parties to comply with their
           obligations under international law, including international humanitarian law, as
           applicable, in relation to the protection of the civilian population, and civilian objects,
           and further reiterates the urgent and imperative need to hold accountable all those
           responsible for violations of international humanitarian law and violations and abuses
           of human rights, including the right to freedom of expression, including against
           journalists and other media professionals and associated personnel;
                 9.    Demands all parties to the conflict to take appropriate measures to end and
           prevent violations and abuses against children, including the continued recruitment
           and use of children in armed conflict, in accordance with obligations under
           international law, identify those responsible for such violations and abuses, consider
           primarily as victims those children who have been released or otherwise separated
           from armed forces and armed groups as per the Paris Princip les endorsed by the FGS,
           cease detention of all children on national security charges where it is in violation of
           applicable international law, calls upon the FGS to implement fully the
           UN Convention on the Rights of the Child 1989 (UNCRC), the two Action Plans
           signed by the FGS in 2012 to end and prevent the recruitment and use of child soldiers
           and the killing and maiming of children, the Somali National Army Command Order
           on the Protection of Children’s Rights Before, During and After Operations, the
           roadmap signed in 2019 and the Standard Operating Procedures on the handover of
           children, and underscores the need to strengthen the legal and operational framework
           for the protection of children in Somalia, including by Somalia becoming a party to
           the Optional Protocols to the UNCRC and the African Charter on the Rights and
           Welfare of the Child;
                  10. Further strongly condemns any misuse or obstruction of humanitarian
           assistance, including attacks against humanitarian and medical personnel, and against
           their means of transport and equipment, as well as hospitals and other medical
           facilities in violation of international law, and demands that all parties allow and
           facilitate full, safe, rapid and unhindered access for the timely delivery of aid to
           persons in need across Somalia in line with the humanitarian principles, including by
           dismantling illegal checkpoints and removing administrative hurdles, and underlines
           the importance of proper accounting in international humanitarian support;
                11. Calls upon the FGS, the FMS and all relevant actors to facilitate, support
           and, where appropriate, implement durable solutions for internal displacement,
           including local integration or resettlement, and to create the conditions conducive to
           the voluntary, safe, dignified and sustainable return of refugees and IDPs, with the
           support of the international community;
                 12. Underlines the need for the FGS to establish and operationalise the
           National Human Rights Commission, accelerate the appointment of Commissioners,
           and establish and operationalise the Constitutional Court and the Judicial Service
           Commission in line with the Provisional Constitution and the relevant legislation,
           calls on the FGS to implement legislation aimed at protecting human rights and
           investigating and prosecuting perpetrators of crimes involving violations or abuses of
           human rights, violations of international humanitarian law, and sexual and gender -
           based violence in conflict and post-conflict situations, further calls on the FGS to
           ensure that sexual offences legislation be compatible with its obligations under
           international law and commitments on the protection of children and women, and
           urges the FGS, with the support of the United Nations, to accelerate the
           implementation of the Joint Communiqué and the adoption and implementation of the
           new National Action Plan to Combat Sexual Violence in Conflict, and commends the


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               FGS for its commitment to fulfilling its reporting obligations under human rights
               treaty bodies;
                    13. Requests the United Nations, the FGS and the FMS to consider the adverse
               implications of climate change, other ecological changes, natural disasters, among
               other factors, in their programmes in Somalia, including by undertaking risk
               assessments and risk management strategies relating to these factors, and requests the
               Secretary-General to provide an update in mandated reporting as appropriate;
                    14. Recalls its request in resolution 2520 (2020) that the Secretary-General
               conducts an independent assessment, by 10 January 2021, and present options to the
               Security Council on international support to the whole security environment in
               Somalia post 2021, and reiterates that options on UNSOM’s role in this regard should
               be provided as part of this independent assessment;
                     15. Affirms that it shall keep the situation in Somalia under continuing review
               and be prepared to review the provisions contained in this resolution, at any time as
               may be necessary, in light of the evolution of the political deve lopments and the
               situation in the country;
                     16. Requests the Secretary-General to keep the Security Council regularly
               informed on the implementation of this resolution, and to identify and report on
               progress towards achieving key political benchmarks, in p articular progress towards
               elections, including through oral updates and no fewer than four written reports, with
               the first written report due by 15 November and every 90 days thereafter;
                    17.   Decides to remain actively seized of the matter.




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