Following strikes on Houthi sites in Yemen launched by the United States and United Kingdom on 11 January – a day after the Security Council adopted a resolution demanding that the Houthis cease attacking merchant and commercial vessels – a senior United Nations official today warned the 15-nation organ of the consequences of further escalation and urged restraint by all concerned parties.
Khaled Khiari, Assistant Secretary-General for the Middle East, Asia and the Pacific in the Departments of Political and Peacebuilding Affairs and Peace Operations, noted that the military forces of the United States and the United Kingdom – supported by Australia, Bahrain, Canada and the Netherlands – reportedly conducted over 50 air and missile strikes on targets across Yemen. Yesterday’s strikes followed continued Houthi targeting of vessels in the Red Sea.
“We are witnessing a cycle of violence that risks grave political, security, economic and humanitarian repercussions in Yemen and the region,” he warned. Recent humanitarian improvements in that country are fragile and could easily be reversed. Further, progress towards reaching a political settlement to end the war in Yemen could be undermined, leaving its people to face the impact of continued conflict.
Yesterday’s events, he emphasized, further demonstrate that the region is on a dangerous escalatory trajectory that could potentially impact millions in Yemen, the region and globally. Calling on all concerned parties to “do their utmost to avoid further escalation, reduce tensions and exercise restraint”, he also reaffirmed the need to ensure the safety and security of maritime navigation.
In the ensuing debate, the permanent Council members who carried out the strikes described them as necessary and proportionate and, while some members concurred given the threat posed to Red Sea shipping, others sounded the alarm over escalatory actions in an already fraught region.
The representative of the United States said that the strikes aimed to disrupt and degrade the Houthis’ ability to continue their attacks and that they were consistent with her country’s right to self-defence under Article 51 of the UN Charter. Since November 2023, 2,000 ships have been forced to divert thousands of miles to avoid the Red Sea – affecting 50 nations – and commercial shipping has been attacked 27 times. She therefore called on Council members – especially those with direct channels to Iran – to pressure that State to reign in the Houthis.
Echoing that position, the United Kingdom’s delegate stated that her country took limited, necessary and proportionate action in self-defence, with particular care taken to minimize the risks to civilians. Since November 2023, the Houthis have launched over 100 drone and missile attacks against vessels from a range of countries, putting innocent lives at risk, threatening the global economy and destabilizing the region – despite the Council’s demand in resolution 2722 (2024) for such attacks to end.
Meanwhile, the representative of Japan recalled that the Houthis illegally seized the Galaxy Leader – a vessel operated by a Japanese company – and have held its crew for more than 50 days. Such actions, which jeopardize the freedom of navigation of commercial vessels and the safety of seafarers, cannot be justified for any reason. He therefore expressed support for the determination of the United States, United Kingdom and relevant countries to fulfil their responsibility to ensure the free and safe navigation of vessels.
However, the Russian Federation’s delegate pushed back on that narrative, stating that the exercise of the right to self-defence does not apply to commercial shipping – as freedom of navigation is governed by the United Nations Convention on the Law of the Sea. Stating that “Washington cannot even get its story straight”, he said that the concept of piracy does not apply in this case and pointed out: “Even if we’re talking about pirates, the Convention gives you the right to seize a pirate vessel and prosecute the crew and not to bomb yet another country back to the Stone Age.”
Mozambique’s delegate, recalling that his delegation abstained from the vote on resolution 2722 (2024), voiced concern that it was misinterpreted as sanctioning the use of force. Calling for increased efforts to address the underlying cause of tensions in the region, he categorically condemned any attacks that endanger commercial vessels and safe and unhindered navigation in the Red Sea. It is common knowledge that Yemen is currently facing a severe humanitarian crisis, he pointed out, and this unfortunate situation is fertile ground for extremism.
In a similar vein, Switzerland’s delegate also recalled that, under the resolution, Member States’ right to defend their vessels is strictly limited to military measures to intercept attacks against merchant vessels and warships to protect them and the persons on board. Noting that any military operation that goes beyond this immediate protection would be disproportionate – and not covered by the resolution – he voiced concern over the military strikes.
“The last thing we need at this stage is reckless military adventurism, and the first thing we need is calm and restraint,” urged the representative of China, warning that the Middle East is already on the brink of extreme danger. Observing that the latest military actions in Yemen destroyed infrastructure, caused civilian casualties, heightened security risks in the Red Sea and risked undermining the ongoing political process in Yemen, he emphasized that the Council never authorized any State to use force.
MAINTENANCE OF INTERNATIONAL PEACE AND SECURITY
Briefing
KHALED KHIARI, Assistant Secretary-General for the Middle East, Asia and the Pacific in the Departments of Political and Peacebuilding Affairs and Peace Operations, noted that the military forces of the United States and the United Kingdom – supported by Australia, Bahrain, Canada and the Netherlands – reportedly conducted over 50 air and missile strikes on targets across Yemen on 11 January, including in Sana’a, Taiz, Hudaydah, Hajja, Sa’ada, Dhamar and Ibb. According to the Houthis, this resulted in five dead and six wounded fighters. While the United Nations cannot independently verify figures at this time, he said that, as of this afternoon, no UN staff or premises were reported to be affected. Yesterday’s strikes followed continued Houthi targeting of vessels in the Red Sea, including an attack on 9 January that involved a combination of drones and missiles that were intercepted by United States and United Kingdom naval forces, he recalled.
He went on to state that, subsequent to the adoption of resolution 2722 (2024), on 11 January the Houthis reportedly launched another attack using an anti-ship ballistic missile that they claimed was a “preliminary retaliation” for the killing of Houthi fighters by United States naval forces in an incident reported on 31 December. “We are witnessing a cycle of violence that risks grave political, security, economic and humanitarian repercussions in Yemen and the region,” he warned. Recent humanitarian improvements in that country are fragile, and they could easily be reversed if there are further incidents. Further, progress towards reaching a political settlement to end the war in Yemen could also be undermined, leaving its people to face the impact of continued conflict.
Yesterday’s events, he emphasized, further demonstrate that the region is on a dangerous escalatory trajectory that could potentially impact millions in Yemen, the region and globally. Calling on all concerned parties to “do their utmost to avoid further escalation, reduce tensions and exercise restraint,” he urged the international community to redouble efforts to avoid dragging Yemen into a regional conflagration. He also reaffirmed the need to ensure the safety and security of maritime navigation in the region, as emphasized in resolution 2722 (2024), and called for the immediate release of the Galaxy Leader and her crew – seized by the Houthis on 19 November. He added that the Council must continue to actively engage with all concerned parties “to prevent further escalation from exacerbating regional tensions or undermining regional peace, security or international trade”.
Statements
VASSILY A. NEBENZIA (Russian Federation) noted the massive strike on Yemeni territory on 11 January by “a so-called international coalition”, headed by the United States and United Kingdom and including Australia, Canada, Bahrain and the Netherlands – the latter of which describes itself as the “capital of global justice”. The exercise of the right to self-defence does not apply to commercial shipping, he said, noting that freedom of navigation is governed by the United Nations Convention on the Law of the Sea, which provides for negotiation and arbitration in the event of violations. Stating that “Washington cannot even get its story straight”, he said that the concept of piracy does not apply in this case and pointed out: “Even if we’re talking about pirates, the Convention gives you the right to seize a pirate vessel and prosecute the crew and not to bomb yet another country back to the Stone Age.” A ceasefire in Gaza is essential to avoid further regional escalation, he stressed, adding that resolution 2722 (2024) does not authorize the arbitrary acts that the United States and its satellites are carrying out in Yemen.
BARBARA WOODWARD (United Kingdom) recalled that on 9 January, the Houthis attacked naval vessels of her country and the United States. On 11 January, her country took limited, necessary and proportionate action in self-defence alongside the United States, with the non-operational support of the Netherlands, Canada, Bahrain and Australia. This operation took particular care to minimize the risks to civilians. Since November 2023, the Houthis have launched over 100 drone and missile attacks against vessels from a range of countries, putting innocent lives at risk, threatening the global economy and destabilizing the region. This has continued despite the Council’s demand in resolution 2722 (2024). The attacks by the Houthis on vessels in the Red Sea must stop. The United Kingdom published a summary of its legal position on its strikes against the Houthis and reported to the Council in writing in accordance with Article 51 of the Charter of the United Nations.
LINDA THOMAS-GREENFIELD (United States) noted that in response to ongoing and escalating Houthi attacks in the Red Sea, the United States and United Kingdom, with support from four countries, conducted a number of joint strikes on Houthi targets in Yemen to disrupt and degrade their ability to continue those reckless attacks. The strikes were necessary and proportionate, consistent with international law and the United States’ inherent right to self-defence under Article 51 of the Charter of the United Nations. However, she affirmed, the decision was not taken lightly, as no one in the room is immune to those attacks – “not even Russia”, she stressed. Since November 2023, 2,000 ships have been forced to divert thousands of miles to avoid the Red Sea, affecting 50 nations, with 27 attacks on commercial shipping – with the Houthis taking hostages from 20 countries, including seizing the Galaxy Leader, a Bahamas-flagged Japanese operated vessel, and holding its crew hostage.
She noted that on 18 December, the United States formed Operation Prosperity Guardian, a 22-country defensive coalition, citing ongoing Houthi attacks and her country’s military response, while pursuing a diplomatic response. She cited resolution 2722 (2024), which references the inherent right of Member States to defend their vessels. The strikes on 11 January occurred against a broad diplomatic backdrop of global condemnation to de-escalate tensions and restore stability in the Red Sea. She called on the Council to make clear that most vessels attacked by the Houthis have nothing to do with Israel, further noting that without Iranian support, the Houthis would struggle to target and attack such vessels. She called on Council members, especially with direct channels to Iran, to pressure that State to reign in the Houthis, further urging the organ to call for the release of hostages and to uphold the free flow of commerce.
SAMUEL ŽBOGAR (Slovenia), condemning Houthi attacks in the Red Sea, recalled the adoption of Council resolution 2722 (2024). Freedom of navigation and maritime security are critically important for his country, he said, adding that any action to defend vessels from attacks must be undertaken in full compliance with international law, including international humanitarian law and international human rights law. Highlighting the principles of distinction, necessity, proportionality and precaution, he pointed out that the people of Yemen have suffered greatly through years of conflict and deserve sustainable peace. Since April 2022, Yemen’s people have benefited from a truce which is broadly holding. “It is in no one’s interest to have a further dangerous escalation in the Middle East,” he warned, adding that these recent developments introduce a new dynamic that has the potential to further complicate an already heated situation. Calling for a de-escalation of tensions, he added that a joint effort by a united Security Council is needed “to avoid crashing into the abyss”.
ZHANG JUN (China) expressed grave concern over the launch of strikes against the Houthis by the United Kingdom and the United States. His country called repeatedly on the Houthis to immediately cease their attacks and harassments on commercial vessels and respect the navigation rights of the commercial vessels of all countries. Beijing also calls upon all parties, particularly major countries with influence, to play a constructive and responsible role and work together to maintain the safety and security of the shipping lanes in the Red Sea. Expressing regret over the latest military actions against Yemen, he observed that they destructed infrastructure and caused civilian casualties. They also heightened security risks in the Red Sea and risked undermining the ongoing political process. The Council has never authorized any State to use force. Their military actions are at odds with Council resolution 2722 (2024). No country shall misinterpret or abuse international law. China sees the tension in the Red Sea as a spillover from the conflict in Gaza. Calling for the prevention of spillover of the conflict while adding fuel to the fire by provoking military confrontation is self-contradictory and irresponsible. The Middle East is already on the brink of extreme danger, he warned, declaring: “The last thing we need at this stage is reckless military adventurism, and the first thing we need is calm and restraint.”
ANDRÉS EFREN MONTALVO SOSA (Ecuador) expressed concern about the escalation of the conflict, echoing the call for all actors not to further aggravate the situation in the interest of peace and stability in the region. Condemning the terrorist attacks perpetrated against various commercial vessels by the Houthis, he recalled that Council resolution 2722 (2024) demands a ceasefire on Houthi attacks on commercial vessels and orders the immediate release of the Galaxy Leader and its crew. Stressing that attacks on commercial vessels in the Red Sea directly affect food insecurity and the humanitarian crisis in Yemen – in addition to having global impacts on regional supply chains and increases in the prices of goods – he called again for political dialogue under the auspices of the United Nations to be the path to sustainable peace in that country.
YAMAZAKI KAZUYUKI (Japan) recalled that the Houthis have been continuously attacking commercial vessels engaged in lawful maritime transit through the Red Sea. Further, they illegally seized the Galaxy Leader – a vessel operated by a Japanese company – and its crew for more than 50 days. Such actions, which jeopardize the freedom of navigation of commercial vessels and the safety of seafarers, cannot be justified for any reason. Recalling that the Council adopted resolution 2722 (2024) two days ago, in which the organ demanded that the Houthis immediately cease their attacks against commercial vessels, he underscored that they have ignored that unequivocal pronouncement. He therefore expressed support for the determination of the United States, United Kingdom and relevant countries to fulfil their responsibility to ensure the free and safe navigation of vessels, reiterating Japan’s firm commitment to not tolerate any action that would “disturb the inalienable freedom of safe navigation”.
DOMINGOS ESTÊVÃO FERNANDES (Mozambique), recalling that his delegation abstained from the vote on Council resolution 2722 (2024), voiced concern that it was misinterpreted as sanctioning the use of force. The employment of force at this precarious time undermines crucial ongoing diplomatic efforts to pull the region back from the brink of further escalation. Calling for moderation and increased efforts to address the underlying cause of tensions in the region, he categorically condemned any attacks that endanger commercial vessels and safe and unhindered navigation in the Red Sea. It is common knowledge that Yemen is currently facing a severe humanitarian crisis, he pointed out, adding that this unfortunate situation is fertile grounds for extremism. Advocating for “maximum caution and restraint by all actors”, he said that the Council’s mandate requires its members to pursue peace rather than violence.
VANESSA FRAZIER (Malta) said that the conflict in Gaza, the deteriorating situation in the West Bank, hostilities along the Blue Line and episodes of insecurity in Syria and Iraq paint a troubling picture; so does the rapidly deteriorating maritime security situation in the Red Sea. The Houthi attacks against commercial shipping in the Red Sea are in violation of international law. They risk the safety of seafarers and other persons and jeopardize the critical flow of goods. Ongoing violence in the region risks fuelling an unfortunate situation where military escalation would be almost inevitable. Any further escalation must be avoided and restraint must be exercised, as outlined in resolution 2722 (2024), she stressed.
ADRIAN DOMINIK HAURI (Switzerland) warned that recent developments are extremely disquieting, recalling that resolution 2722 (2024) underscores Member States’ right to defend their vessels from attacks – including those that undermine navigational rights and freedoms. However, this is strictly limited to military measures to intercept attacks against merchant vessels and warships to protect said vessels and the persons on board. In this context, any military operation that goes beyond this immediate protection need would be disproportionate – and not covered by the resolution. Voicing concern over the military strikes carried out by the United States-United Kingdom coalition, he stressed: “At a time when peace talks in Yemen are making significant progress, we must help to preserve these gains.” He therefore called on all parties involved in the Red Sea and the region to exercise the utmost restraint and strictly comply with international law.
JOONKOOK HWANG (Republic of Korea) reiterated the vital importance of assuring free and safe navigation in the Red Sea – through which some 15 per cent of global sea trade passes. Stressing that attacks against commercial vessels are unacceptable under any circumstances, he noted that the Houthis’ attacks have continued – posing threats to both lives and the global economy. He recalled that resolution 2722 (2024), adopted only two days ago, clearly stipulates Member States’ right, in accordance with international law, to defend their vessels from attacks. This includes those that undermine navigational rights and freedoms. He again urged the Houthis to refrain from dangerous provocations and to immediately release the Galaxy Leader and her crew, also stressing the importance of preventing further spillover from the precarious situation in the region.
CAROLYN RODRIGUES-BIRKETT (Guyana) expressed concern about the impact of recent attacks, in the Red Sea and now in Yemen, on diplomatic efforts to achieve sustainable peace in Yemen and on efforts to contain the ongoing conflict in the region. Last week, Council members agreed on the need to avoid any further escalation in tensions, she recalled, noting that they acknowledged the need to avoid jeopardizing the prospects of reaching a peace agreement in Yemen. “One week later, we seem to be faced with an entirely new dispensation” where the prospects for sustainable peace are in greater jeopardy, she said. Yemen’s people can ill afford a re-escalation of hostilities, she pointed out, calling for all sides to exercise restraint. Experience shows that military escalation will only aggravate the situation, she said, adding that the Council must maintain support for the Special Envoy’s efforts to negotiate peace in Yemen.
MICHAEL IMRAN KANU (Sierra Leone) recalled that the Council adopted resolution 2722 (2024) to address the Houthis’ continued attacks on commercial vessels in the Red Sea. His delegation voted in favour of the resolution in view of the principle of protecting the navigational rights and freedoms of all Member States’ vessels, as well as the threat posed to regional and international peace and security. Nonetheless, any action taken by Member States following the adoption of the resolution must be in line with both the provisions of the text and international law. He called for the release of Galaxy Leader and its crew, also stressing the need to safeguard the Yemeni peace process and address the root causes of regional instability, including the conflict in Gaza.
AMAR BENDJAMA (Algeria) expressed concern over the ongoing military operations and airstrikes in the Red Sea region targeting sites and cities in Yemen, calling for restraint and caution to avoid further escalation. He warned that the use of force will only complicate the situation in that country, as well as efforts by the UN Special Envoy to end the war, relaunch the political process and effect a united country with a Government that controls the coastal border. In the current context, “the need for a ceasefire in Gaza has never been more urgent”, he stressed, adding that this is the only way to ease tensions in the region and avoid a spillover with catastrophic consequences.
NICOLAS DE RIVIÈRE (France), Council President for January, speaking in his national capacity, said resolution 2722 (2024) sends a clear and resolute message to the Houthis. Their actions affect 15 per cent of global trade, he said, calling for the immediate release of the Galaxy Leader and its crew, which hailed from numerous countries. Iran, which finances and arms the Houthis, should cease doing so, he said, stressing the importance of respecting navigational rights and freedoms. His country will continue to shoulder its responsibility and contribute to maritime security in this area, working hand in hand with its partners, he said, noting that the French frigate Languedoc was used to destroy Houthi drones.
Mr. NEBENZIA (Russian Federation), taking the floor a second time, called the arguments put forward by the United States and the United Kingdom “very weak”. There is no legal basis on which to justify their attacks on sovereign Yemen, he underscored, questioning what right to self-defence can exist when London and Washington, D.C., are thousands of miles away from the Gulf of Aden. Disproportionately and illegally bombing another State is not the same as defending commercial shipping. “The Anglo-Saxon juror and their satellites”, he said, are once again flagrantly violating the Charter of the United Nations and other norms of international law, further destabilizing the situation in a Middle East already in flames. These new rounds of bombing are the West’s contribution to Middle East diplomacy, he added.
Ms. THOMAS-GREENFIELD (United States) said that her delegation was clear in its statement – “despite the fact that my Russian colleague thinks it was weak”. The United States carried out action under Article 51 of the Charter of the United Nations to ensure freedom of navigation and the free flow of commerce. This is not only for the United States, but also for the 50 nations affected by the attacks, with ships rerouted thousands of miles and crews held hostage. Vessels would have been hit without her country’s intervention, she affirmed, stating that de-escalation must come from the Houthis putting “all of our shipping lanes in jeopardy”.
Ms. WOODWARD (United Kingdom) said that her delegation has both “published a summary of our legal position on last night’s strikes” and reported to the Council in writing in accordance with Article 51 of the Charter of the United Nations.
