Lebanon: Consultations on Resolution 1701
On Monday morning (17 March), Council members are expected to receive a briefing in closed consultations on the Secretary-General’s latest report on the implementation of resolution 1701 (S/2025/153), which was circulated to Council members on 11 March. Adopted in 2006, resolution 1701 called for a cessation of hostilities between Israel and Hezbollah. Special Coordinator for Lebanon Jeanine Hennis-Plasschaert and Under-Secretary-General for Peace Operations Jean-Pierre Lacroix are the expected briefers.
The Secretary-General’s report, which covers the period between 21 October 2024 and 20 February, notes that the level of violence has “dramatically decreased” since the cessation of hostilities arrangement between Israel and Lebanon (S/2024/870) entered into effect on 27 November 2024 following more than 13 months of hostilities, primarily involving Israel and Hezbollah. Among other things, the arrangement outlined a 60-day deadline for the Israel Defense Forces (IDF) to withdraw south of the Blue Line and, in parallel, for the Lebanese Armed Forces (LAF) to deploy to positions south of the Litani river. The 60-day deadline was later extended until 18 February. (For background, see the brief on Lebanon in our March 2025 Monthly Forecast. The Blue Line is a withdrawal line set by the UN in 2000 to confirm the withdrawal of Israeli forces from southern Lebanon. While not representing an international border, the Blue Line acts in practice as a boundary between Lebanon and Israel in the absence of an agreed-upon border between the two states.)
In his report, the Secretary-General welcomes the “continued holding of the cessation of hostilities…despite challenges”. The report notes that, since 27 November 2024, the UN Interim Force in Lebanon (UNIFIL) detected 12 “trajectories” fired from north of the Blue Line and 617 from the south, as well as 19 air attacks by the IDF. The report says that UNIFIL’s freedom of movement was “respected in most cases”. But it also describes numerous incidents where the mission’s freedom of movement was restricted or impeded by both the IDF and “individuals” who on one occasion identified themselves as members of Hezbollah.
The report registers progress towards the objective outlined in the cessation of hostilities arrangement of the withdrawal of the IDF south of the Blue Line and the deployment of the LAF. It notes, however, that the “situation remains fragile” and that the IDF has “not yet completely withdrawn from Lebanese territory, remaining at five locations, and designating two areas as so called ‘buffer zones’ along the Blue Line”. The report notes that this decision was taken “notwithstanding UNIFIL’s offer to establish security arrangements at those positions”.
In announcing its decision regarding the five positions, the IDF reportedly said on 17 February that it will remain there “until Israel is certain that Hezbollah will not return to the area south of the Litani River”. In an 18 February joint statement, Lebanese President Joseph Aoun, Prime Minister Nawaf Salam, and Parliament Speaker Nabih Berri stressed “the urgent need for Israel’s full withdrawal from occupied Lebanese territory”.
In his report, the Secretary-General notes that the IDF’s presence north of the Blue Line is a violation of Lebanese sovereignty and territorial integrity, as well as of resolution 1701, and undermines the efforts of the Lebanese authorities to extend state authority throughout its territory. The Secretary-General also says that, since 27 November 2024, the LAF has started to dismantle military infrastructure and confiscate weapons “believed to have belonged to Hizbullah south of the Litani River”, and notes that the maintenance of arms outside the state’s control by nonstate groups is in violation of resolution 1701 and restricts the state’s ability to exercise full sovereignty and authority over its territory.
At Monday’s meeting, the briefers and Council members are expected to also discuss recent developments that occurred after the report’s cut-off date. Some speakers may welcome the 11 March announcement by US Deputy Presidential Special Envoy for the Middle East Morgan Ortagus that Israel and Lebanon will begin talks aimed at resolving outstanding issues between the two countries. According to the statement, negotiators will address three issues: the release of Lebanese prisoners held by Israel, disputed points along the Blue Line, and the remaining five points where Israeli forces are still deployed in southern Lebanon. On Monday, Council members are expected to underscore the need for the parties to consolidate the cessation of hostilities arrangement and fully implement resolution 1701. Council members are likely to seek additional information on the announced talks, including regarding the modalities and timeframe for the negotiations, and call for the talks to be approached in good faith. On 13 March, Israeli Prime Minister Benjamin Netanyahu said that Israel will not relinquish control of the five points. In response, Berri said that Lebanon “will never cede an inch of its territory”.
Reconstruction needs in Lebanon might also be discussed at Monday’s meeting. The Secretary-General’s report notes that “[r]esidential areas, civilian infrastructure, and agricultural land in southern Lebanon was extensively damaged or destroyed by Israeli operations”. In a 7 March report, the World Bank estimated that recovery and reconstruction needs in Lebanon amount to $11 billion.
Council members may be interested in an update from Lacroix on how UNIFIL has adapted its posture within its existing mandate to support the implementation of the cessation of hostilities arrangement. The Secretary-General’s report says that since 27 November 2024, UNIFIL has focused on supporting the LAF’s redeployment and, where possible, on resuming patrols. According to the report, as at 20 February, the LAF had deployed to around 100 positions south of the Litani river, compared with an estimated ten positions on 27 November 2024. During the reporting period, UNIFIL, working independently or in coordination with the LAF, discovered 194 weapon caches “believed to have belonged to Hizbullah”, as well as six caches “believed to have belonged to the Israel Defense Forces”. UNIFIL has also facilitated and coordinated civilian and humanitarian activities, such as the transportation of medical supplies and the repair of civilian infrastructure.
On Monday, many Council members may express support for UNIFIL, and stress the importance of guaranteeing the safety, security, and freedom of movement of UNIFIL peacekeepers. Members may underscore the inviolability of UN premises and call for accountability for all attacks against UNIFIL. Members are also expected to call on the international community to provide material and financial support to the LAF so that it can effectively implement its side of the cessation of hostilities arrangement and resolution 1701. Some members might also call on UNIFIL to report on its activities within the mechanism tasked in the cessation of hostilities arrangement with monitoring, verifying, and assisting in “ensuring enforcement” of the commitments outlined in the arrangement. Additionally, some members might refer to reports of a large group of worshippers from Israel crossing into Lebanese territory on 7 March to pray at a shrine under IDF escort.
Council members may welcome recent political developments in Lebanon, such as the 9 January election of President Aoun, the designation on 13 January of Nawaf Salam as prime minister, the formation of the government on 8 February, and the government gaining the Lebanese Parliament’s confidence on 26 February. Hennis-Plasschaert might provide an update on the meetings she had held with Lebanese authorities ahead of Monday’s consultations, as well as on her recent visit to Israel, where she held meetings with senior Israeli officials.
