Security Council resolution 2251 (2015) [on extension of the mandate of the UN Interim Security Force for Abyei (UNISFA) until 15 May 2016]
Symbol: S/RES/2251 (2015)
Date: 2015-12-15
Status: adopted
Agenda: S/70 [217] UN INTERIM SECURITY FORCE FOR ABYEI
S/70 [160] SUDAN--POLITICAL CONDITIONS
S/70 [223] SOUTH SUDAN--POLITICAL CONDITIONS
Subjects: UN Interim Security Force for Abyei|Joint Border Verification Monitoring Mechanism (Sudan and South Sudan)|Abyei Joint Oversight Committee|UN. Mine Action Service|UN Mission in South Sudan|AU/UN Hybrid Operation in Darfur|Charter of the United Nations (1945). Chapter VII|INTERNAL SECURITY|PEACEKEEPING OPERATIONS|BOUNDARIES|DEMILITARIZED ZONES|ABYEI (SUDAN)|SUDAN|SOUTH SUDAN|MINE CLEARANCE|MILITARY PERSONNEL|POLICE|RELIEF PERSONNEL|HUMAN RIGHTS MONITORING|GENDER-BASED VIOLENCE|COORDINATION WITHIN UN SYSTEM
Votes in favour: 15
Votes against: 0
Abstentions: 0
Voting record:
country: ANGOLA
vote: yes
country: CHAD
vote: yes
country: CHILE
vote: yes
country: CHINA
vote: yes
country: FRANCE
vote: yes
country: JORDAN
vote: yes
country: LITHUANIA
vote: yes
country: MALAYSIA
vote: yes
country: NEW ZEALAND
vote: yes
country: NIGERIA
vote: yes
country: RUSSIAN FEDERATION
vote: yes
country: SPAIN
vote: yes
country: UNITED KINGDOM
vote: yes
country: UNITED STATES
vote: yes
country: VENEZUELA (BOLIVARIAN REPUBLIC OF)
vote: yes

               United Nations                                                                  S/RES/2251 (2015)
               Security Council                                                Distr.: General
                                                                               15 December 2015




               Resolution 2251 (2015)
               Adopted by the Security Council at its 7580th meeting, on
               15 December 2015

                    The Security Council,
                     Recalling its previous resolutions and its presidential statements on the
               situation in Sudan and South Sudan, and in particular, resolutions 1990 (2011), 2024
               (2011), 2032 (2011), 2046 (2012), 2047 (2012), 2075 (2012), 2104 (2013), 2126
               (2013), 2156 (2014), 2179 (2014), 2205 (2015), and 2230 (2015) as well as
               presidential statements S/PRST/2012/19 and S/PRST/2013/14, and the Council’s
               press statements of 18 June 2012, 21 September 2012, 28 September 2012, 6 May
               2013, 14 June 2013, 14 February 2014, 17 March 2014 and 11 December 2014,
                      Reaffirming its strong commitment to the sovereignty, independence, unity and
               territorial integrity of Sudan and South Sudan, and to the purposes and the
               principles of the Charter of the United Nations, and recalling the importance of the
               principles of good neighbourliness, non-interference and regional cooperation,
                     Reiterating that the territorial boundaries of States shall not be altered by
               force, and that any territorial disputes shall be settled exclusively by peaceful
               means, affirming the priority it attaches to the full and urgent implementation of all
               outstanding issues from the Comprehensive Peace Agreement (CPA), and
               underscoring that the future status of Abyei shall be resolved by negotiations
               between the parties in a manner consistent with the CPA and not by the unilateral
               actions of either party,
                    Recalling the commitments made by the Government of Sudan and the
               Government of South Sudan in the 20 June 2011 Agreement between the
               Government of Sudan and the Sudan People’s Liberation Movement on Temporary
               Arrangements for the Administration and Security of the Abyei Area, the 29 June
               2011 Agreement between the Government of the Sudan and the Government of
               South Sudan on Border Security and the Joint Political and Security Mechanism
               (JPSM), and the 30 July 2011 Agreement on the Border Monitoring Support Mission
               between the Government of Sudan and the Government of South Sud an, as well as
               the 27 September 2012 Agreements on Cooperation and Security Arrangements, the
               JPSM’s 8 March 2013 decision, and the Implementation Matrix of 12 March 2013,
               reached by the Government of Sudan and the Government of South Sudan in Addis
               Ababa under the auspices of the African Union High-level Implementation Panel
               (AUHIP), as well as the extraordinary meeting of the JPSM 13 -14 October 2015,

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                     Expressing its full support for the efforts of the African Union on the situation
               between the Republic of Sudan and the Republic of South Sudan, in order to ease
               the current tension, facilitate the resumption of negotiations on post -secession
               relations and the normalization of their relations, recalling in this regard the African
               Union Peace and Security Council (AUPSC) communiqués of 24 April 2012,
               24 October 2012, 25 January 2013, 7 May 2013, 29 July 2013, 23 September 2013,
               26 October 2013, 12 November 2013, 12 September 2014, 31 July 2015, and
               25 August 2015; the AUPSC press statements of 6 November 2013 and 24 March
               2015; and the statement from the Chairperson of the African Union Commission on
               28 October 2013 and the 24 June 2015 and 14 October 2015 statements from the
               African Union Commission,
                     Reaffirming its previous resolutions 1265 (1999), 1296 (2000), 1674 (2006),
               1738 (2006), 1894 (2009) 2175 (2014) and 2222 (2015) on the protection of
               civilians in armed conflict; 1612 (2005), 1882 (2009), 1998 (2011), 2068 (2012),
               2143 (2014) and 2223 (2015) on children and armed conflict; 1502 (2003) on the
               protection of humanitarian and United Nations personnel; and 1325 (2000), 1820
               (2008), 1888 (2009), 1889 (2009), 1960 (2010), 2106 (2013), 2122 (2013), and
               2242 (2015) on women peace and security,
                     Stressing the need for effective human rights monitoring and reporting,
               including of any sexual and gender-based violence and violations and abuses
               committed against women and children, taking note that there have been no
               developments with regard to the operationalization of human rights monitoring in
               the Abyei Area, and reiterating its concern at the lack of cooperation by the parties
               with the Secretary-General to this end,
                     Recalling that its resolution 2086 (2013) reiterates the importance, when
               establishing and renewing the mandates of United Nations Missions, o f including
               provisions on the promotion of gender equality and the empowerment of women in
               post-conflict situations and on children and armed conflict, and emphasizing that
               persistent barriers to full implementation of resolution 1325 (2000), and subsequen t
               resolutions on Women, Peace, and Security, including 2242 (2015), will only be
               dismantled through dedicated commitment to women’s empowerment, participation,
               and human rights, and through concerted leadership, consistent information and
               action, and support, to build women’s engagement in all levels of decision-making,
                     Acknowledging the Government of Sudan and the Government of South
               Sudan’s acceptance at the 13-14 October 2015 JPSM meeting of the map presented
               by the AUHIP in November 2011 relating to the SDBZ, their agreement that the
               centreline is only the location of the separation line between armed forces, as well
               as the Parties’ agreement to activate all mechanisms relating to the JPSM as
               provided for in relevant agreements, and encouraging the parties to delineate or
               agree on the coordinates of, and demilitarize the SDBZ, including the “14 Mile
               Area”, and to fully implement the Joint Border Verification and Monitoring
               Mechanism (JBVMM), in accordance with Security Council resolution 2046 (2012)
               and the AUPSC Roadmap of 24 April 2012, and underlining the importance of fully
               establishing and maintaining effective JBVMM monitoring of the SDBZ, including
               the “14 Mile Area”, and further urging the parties to cooperate in allowing the
               United Nations Interim Security Force for Abyei (UNISFA) to fulfil its
               responsibility to provide security for the JBVMM’s mission to monitor the SDBZ,




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                Noting with concern the absence of local institutions to manage the Abyei
           Area, lack of progress in convening an Abyei Joint Oversight Committee (AJOC)
           meeting since March 2015 and lack of progress in convening a meeting of Misseriya
           and Ngok Dinka leaders,
                 Recognizing the importance of regular dialogue between the Governments of
           Sudan and South Sudan, recalling the United Nations Security Council decision in
           resolution 2046 (2012) that the parties must resume immediately negotiations to
           reach agreement on Abyei final status under the auspices of the AUHIP, calling
           upon all parties to engage constructively in the process mediated by the AUHIP
           towards final agreement on the final status of the Abyei Area, and stressing that the
           parties must immediately implement pending aspects of the 20 June 2011
           Agreement, in particular to resolve the dispute over the Abyei Area Agreement, and
           to resolve the dispute over the Abyei Area Council, and immediately establish the
           Abyei Area Administration and Abyei Police Service,
                Stressing that both countries and communities will have much to gain if they
           show restraint and choose the path of dialogue instead of resorting to violence or
           provocations,
                 Commending the continued assistance provided to the parties by the AUHIP,
           the Intergovernmental Authority on Development, the Federal Democratic Republic
           of Ethiopia, the Special Envoy of the Secretary-General for Sudan and South Sudan,
           and the United Nations Interim Security Force for Abyei (UNISFA),
                Further commending the efforts of UNISFA in effectively carrying out its
           mandate, including by its ongoing facilitation of peaceful migration throughout the
           Abyei Area, conflict prevention, mediation and deterrence, a nd expressing its deep
           appreciation for the work of the troop-contributing countries, and strongly
           underscoring the unacceptability of any attack on UN personnel, including the
           26 November attack that resulted in the death of a peacekeeper, and reiterating that
           such attacks should be swiftly and thoroughly investigated, and that those
           responsible should be held to account,
                 Taking note of the security situation in the Abyei Area as characterized by the
           11 September 2015 and 13 November 2015 Secretary-General’s reports (S/2015/700
           and S/2015/870), and acknowledging UNISFA’s contribution to enhanced peace and
           stability since its deployment and expressing its determinatio n to prevent the
           recurrence of violence against or displacements of civilians and to avert
           intercommunal conflict,
                 Reiterating its deep concern regarding the public administration and rule of
           law vacuum in the Abyei Area, due to continued delays in the e stablishment of the
           Abyei Area Administration Council and Police, including a special unit to deal with
           particular issues related to nomadic migration, which are essential to maintain law
           and order and prevent intercommunal conflict in Abyei, and in this r egard,
           welcoming UNISFA’s efforts to support and strengthen community protection
           committees, and to continue engaging with both governments on this issue,
                 Noting with concern the continued delay in establishing the temporary
           institutions and resolving the final status of Abyei and that the continued threat of
           intercommunal violence contributes to heightened tensions in the Abyei Area,
           including those ongoing tensions that prevent UNISFA’s and other agencies’
           Sudanese staff from returning to Abyei,


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                     Urging all parties to refrain from any unilateral action that could aggravate
               intercommunal relations within the Abyei Area, expressing concern over the
               continued implications of what the AUPSC described in their 6 November 2013
               press statement as “the decision by the Ngok Dinka to conduct a unilateral
               referendum” and also in this context, taking note that the Government of Sudan
               proceeded with its April 2015 national elections in Abyei,
                    Taking note of the information in the 13 November 2015 Secretary-General’s
               report (S/2015/870) regarding continued earthwork excavation in Diffra,
                     Bearing in mind the current humanitarian situation in which humanitarian
               actors continue to provide assistance to over 89,000 people in the Abyei Area and
               the importance of coherence of United Nations assistance in the region, and further
               stressing the urgency of facilitating the delivery of humanitarian assistance to all
               affected populations,
                     Affirming the importance of voluntary, safe, dignified return and sustainable
               reintegration of displaced persons, and of peaceful and orderly migration cycles
               respecting the traditional migratory routes from Sudan to South Sudan through
               Abyei, and urging UNISFA to continue to take measures as neces sary to ensure
               security in the Abyei Area in accordance with its mandate,
                     Recalling its resolution 2117 (2013), and expressing grave concern at the
               threat to peace and security in Abyei arising from the illicit transfer, destabilizing
               accumulation and misuse of small arms and light weapons, and in this regard,
               welcoming UNISFA’s progress on completing infrastructure, systems, and policy for
               weapons confiscation, storage and destruction,
                    Expressing concern about the residual threat of landmines and explosive
               remnants of war in the Abyei Area, which hinders the safe return of displaced
               persons to their homes, safe migration, and livelihood activities,
                    Taking note of the 11 September 2015 and 13 November 2015 Secretary-General’s reports (S/2015/700 and S/2015/870), including the hope that the
               momentum for dialogue between the two governments can revive implementation of
               the 20 June 2011 Abyei Agreement and translate into a sustainable improvement of
               border security, and the recommendations contained therein,
                    Recognizing that the current situation in Abyei and along the border between
               the Sudan and South Sudan continues to constitute a serious threat to international
               peace and security,
                     1.   Decides to extend until 15 May 2016 the mandate of the United Nations
               Interim Security Force for Abyei (UNISFA) as set out in paragraph 2 of resolution
               1990 (2011) and modified by resolution 2024 (2011) and paragraph 1 of resolution
               2075 (2012), and acting under Chapter VII of the Charter of the United Nations,
               further decides to extend until 15 May 2016 the tasks of UNISFA as set out in
               paragraph 3 of resolution 1990 (2011), and determines that for the purposes of
               paragraph 1 of resolution 2024 (2011), support to the operational activities of the
               JBVMM shall include support to the Ad Hoc Committees, as appropriate when so
               requested by consensual decisions of these mechanisms, within UNISFA’s
               operational area and existing capabilities;
                    2.    Takes note of the stated intention by both sides to hold another AJOC
               meeting, regrets the meeting has not yet taken place, and urges the swift resumption


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           of regular meetings to ensure steady progress on the implementation of the 20 June
           2011 Agreement, including the implementation of the AJOC decisions, welcomes
           African Union initiatives to support this goal and encourages its continued
           engagement, and requests the Secretary-General to provide an assessment of
           progress on these issues in his regular reports;
                 3.    Underscores that continued cooperation between the Government of
           Sudan and Government of South Sudan is also critical for peace, security and
           stability and the future relations between them;
                4.    Further reiterates its demand that Sudan and South Sudan urgently
           commence the establishment of the Abyei Area Administration and Council,
           including by resolving the deadlock over the composition of the Council, and
           constitute the Abyei Police Service, to enable it to take over policing functions
           throughout the Abyei Area, including the protection of oil infrastructure, in
           accordance with their commitments in the 20 June 2011 Agreement;
                 5.   Expresses renewed concern regarding the delays and stalled efforts to
           fully operationalize the JBVMM, takes note of the Secretary-General’s benchmarks
           and recommendations regarding JBVMM operations, takes note that continued
           investment in achieving full operational capability of the JBVMM should be based
           on a set of conditions, including resolution of the dispute over the SDBZ,
           resumption of border demarcation discussions, occurrence of regular meetings of
           the JPSM, and granting of full freedom of movement, and calls on both parties to
           demonstrate full commitment to implementation of their border arrangements and
           take the necessary steps to this effect, including by swiftly holding a new meeting of
           the JPSM to take the operational decisions related to their agreement on the SDBZ;
                 6.    Decides to maintain the troops authorized by resolution 2104 (2013)
           already deployed, and that the remaining authorized forces continue to be deployed
           dependent on the evolution of the JBVMM, to enable UNISFA to provide required
           force protection to the JBVMM and to enable UNISFA to fully support the JBVMM
           to conduct extended operations into the SDBZ as soon as possibl e, and requests the
           Secretary-General to keep the Council fully updated on the status of deployment as
           part of his regular reporting cycle;
                 7.  Calls upon the Government of Sudan and the Government of South
           Sudan to make timely and effective use of the JBVMM, JPSM and other agreed
           joint mechanisms to ensure the security and transparency of the SDBZ, including
           the “14 Mile Area”;
                 8.    Urges renewed efforts to determine conclusively the SDBZ centreline on
           the ground, and reiterates that the centreline of the SDBZ in no way prejudices the
           current or future legal status of the border, ongoing negotiations on the disputed and
           claimed areas, and demarcation of the borders;
                9.    Underscores that UNISFA’s protection of civilians mandate as set out in
           paragraph 3 of resolution 1990 (2011) includes taking the necessary actions to
           protect civilians under imminent threat of physical violence, irrespective of the
           source of such violence;
                 10. Condemns the intermittent presence of South Sudan security service
           personnel and the deployment of Diffra Oil Police units in the Abyei Area, in
           violation of the 20 June 2011 agreement, as well as any entry of armed militias into



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               the territory, and reiterates its demands that immediately and without preconditions
               the Government of South Sudan fully redeploy its security service personnel from
               the Abyei Area and that the Government of Sudan redeploy the Oil Police in Diffra
               from the Abyei Area, and further reiterates, in accordance with relevant resolutions,
               in particular resolution 1990 (2011) and resolution 2046 (2012), that the Abyei Area
               shall be demilitarized from any forces, as well as armed elements of the local
               communities, other than UNISFA and the Abyei Police Service;
                     11. Supports the AJOC’s 3 May 2013 and 30 March 2015 decisions on
               Abyei’s status as a weapons-free area, underscores the AUPSC’s concern in its
               7 May 2013 Communiqué over reports that various communities living in Abyei are
               heavily armed, recalls that the 20 June 2011 Agreement on Temporary Arrangements
               for the Administration and Security of the Abyei Area stipulates that Abyei should
               be a weapons-free area and that only UNISFA is authorized to carry weapons inside
               the area, and in this regard, urges the two Governments to take all necessary steps to
               ensure that Abyei is effectively demilitarized, including through disarmament
               programs as necessary;
                     12. Reaffirms that UNISFA may undertake weapons confiscation and
               destruction in the Abyei Area as authorized under resolution 1990 (2011), consistent
               with its mandate and within its existing capabilities, in coordination with the
               signatories of the June 2011 Agreement on the Temporary Arrangements for the
               Administration and Security of the Abyei Area, the AJOC, and the Misseriya and
               Ngok Dinka communities and consistent with the previous AJOC decision to
               establish the Area as a “weapons free area”, and reiterates its request that UNISFA,
               observe, document and report on the movement of weapons into Abyei and the
               presence, destruction and confiscation of weapons within Abyei as part of the
               Secretary-General’s regular reporting cycle;
                     13. Requests UNISFA to continue its dialogue with the AJOC and with the
               Misseriya and Ngok Dinka communities on effective strategies and oversight
               mechanisms for ensuring full compliance by all relevant parties with Abyei’s status
               as a weapons-free area, with a particular priority placed on the urgent elimination of
               heavy or crew-served weapons, as well as rocket-propelled grenades, and calls upon
               the Governments of Sudan and South Sudan, the AJOC, and the Misseriya and Ngok
               Dinka communities to extend full cooperation to UNISFA in this regard;
                     14. Urges the two Governments immediately to take steps to implement
               confidence-building measures among the respective communities in the Abyei Ar ea,
               including through reconciliation processes at the grass-roots level and supporting
               UNISFA in promoting community dialogue, urges the planned convening of a
               meeting between the Ngok Dinka and Misseriya traditional leaders, and strongly
               urges all Abyei communities to exercise maximum restraint in all their engagements
               and to desist from inflammatory acts or statements that may lead to violent clashes;
                     15. Welcomes UNISFA initiatives, under the leadership of Mr. Haile Tilahun
               Gebremariam, to support community dialogue and efforts by the Misseriya and
               Ngok Dinka communities to strengthen intercommunal relationships and facilitate
               stability and reconciliation in the Abyei Area, including the 17 -19 September
               conference in Aweil, South Sudan, and the 7 October joint meeting at Todach, and
               encourages the parties to move forward with organizing the traditional leaders ’
               reconciliation meeting per the resolution of the AJOC meeting of 29 -30 March
               2015;


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                16. Welcomes UNISFA’s continued efforts, within existing capabilities and
           resources and, in close coordination with the Misseriya and Ngok Dinka
           communities, to strengthen the capacities of Community Protection Committees in
           order to assist with management of law and order processes in Abyei and to
           continue engaging with both governments on this issue;
                 17. Calls upon all parties to cooperate fully with the findings and
           recommendations following the Abyei Area Joint Investigation and Inquiry
           Committee’s investigation into the killing of a UNISFA peacekeeper and the Ngok
           Dinka Paramount Chief, welcomes the 24 March 2015 AUPSC press statement
           requesting the AU Commission to engage the parties on the findings and
           recommendations, and reiterates the need to enable the two communities to find
           closure on the assassination of the Ngok Dinka Paramount Chief, bearing in mind
           the need to promote stability and reconciliation in the Abyei Area;
                18. Expresses its intention to review as appropriate the mandate of UNISFA
           for possible reconfiguration of the force in light of the compliance by Sudan and
           South Sudan with the decisions set forth in resolution 2046 (2012) and their
           commitments as set forth in the Agreements of 20 June, 29 June, 30 July 2011 and
           27 September 2012, including the redeployment of all forces from the SDBZ,
           achieving full operational capability for the JVBMM, and the Ad Hoc Committees,
           as well as completing the full demilitarization of the Abyei Area;
                19. Calls upon all Member States, in particular Sudan and South Sudan, to
           ensure the free, unhindered and expeditious movement, to and from Abyei and
           throughout the SDBZ, of all personnel, as well as equipment, provisions, supplies
           and other goods, including vehicles, aircraft, and spare parts, which are for the
           exclusive and official use of UNISFA;
                 20. Renews its call upon the Governments of Sudan and South Sudan to
           provide full support to the United Nations, including by promptly issuing visas to
           military, police and civilian United Nations personnel, including humanitarian
           personnel, without prejudice to their nationality, for entry into Sudan and South
           Sudan, facilitating basing arrangements, infrastructure construction in the Mission
           Area and flight clearances, and providing logistical support, calls upon the
           Governments of Sudan and South Sudan to facilitate travel from within Sudan and
           South Sudan to and from Abyei, and further calls upon all parties to fully adhere to
           their obligations under the Status of Forces Agreements;
                 21. Recognizes that the absence of development projects and the inability to
           deliver basic government services has had an adverse effect on Abyei populations
           and calls upon the Government of Sudan and the Government of South Sudan, as
           well as donors to support reconstruction and capacity-building;
                 22. Demands that the Government of Sudan and the Government of South
           Sudan continue to facilitate the deployment of the United Nations Mine Action
           Service (UNMAS) to ensure JBVMM freedom of movement, as well as the
           identification and clearance of mines in the Abyei Area and SDBZ;
                 23. Further demands that all parties involved allow all humanitarian
           personnel full, safe and unhindered access to civilians in need of assistance and all
           necessary facilities for their operations, in accordance with international law,
           including applicable international humanitarian law, and United Nations guiding
           principles of humanitarian assistance;


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                     24. Strongly urges that all parties cease all forms of violence, human rights
               violations and abuses, violations of international humanitarian law, and violations
               and abuses against children in violation of applicable international law;
                     25. Requests the Secretary-General to ensure that effective human rights
               monitoring is carried out, and the results included in his reports to the Council, and
               reiterates its call upon the Government of Sudan and the Government of South
               Sudan to extend their full cooperation to the Secretary-General to this end,
               including by issuing visas to the concerned United Nations personnel;
                     26. Requests the Secretary-General to take the necessary measures to ensure
               full compliance of UNISFA with the United Nations zero -tolerance policy on sexual
               exploitation and abuse and to keep the Council informed if cases of such conduct
               occur;
                     27. Requests the Secretary-General to continue to inform the Council of
               progress in implementing UNISFA’s mandate in one written report, no later than
               15 April 2016, and continue to bring to the Council’s immediate attention any
               serious violations of the above referenced Agreements;
                    28. Notes the Secretary-General’s efforts to ensure close cooperation among
               United Nations missions in the region, including UNISFA, the United Nations
               Mission in the Republic of South Sudan (UNMISS), and the African Union-United
               Nations Hybrid Operation in Darfur (UNAMID), as well as his Special Envoy for
               Sudan and South Sudan, and requests that he continue this practice;
                    29.   Decides to remain actively seized of this matter.




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