United Nations Interim Force in Lebanon (UNIFIL)

In the early 1970s, tension along the Israel-Lebanon border increased, especially after the relocation of Palestinian armed elements from Jordan to Lebanon. Palestinian terrorist operations against Israel and Israeli reprisals against Palestinian bases in Lebanon intensified. On March 11, 1978, a commando attack in Israel resulted in many dead and wounded among the Israeli population; the Palestine Liberation Organization (PLO) claimed responsibility for that raid. In response, Israeli forces invaded Lebanon on the night of March 14/15, and in a few days, occupied the entire southern part of the country except for the city of Tyre and its surrounding area.

On March 15, 1978, the Lebanese Government submitted a strong protest to the Security Council against the Israeli invasion, stating that it had no connection with the Palestinian commando operation. On March 19, the Security Council adopted resolutions 425 (1978) and 426 (1978), in which it called upon Israel immediately to cease its military action and withdraw its forces from all Lebanese territory. It also decided on the immediate establishment of UNIFIL. The first UNIFIL troops arrived in the area on March 23, 1978.

In June 1982, Israel invaded Lebanon again. For three years, UNIFIL remained behind the Israeli lines, with its role limited to providing protection and humanitarian assistance to the local population to the extent possible. In 1985, Israel carried out a partial withdrawal, but it retained control of an area in southern Lebanon manned by the Israel Defense Forces (IDF) and by Lebanese de facto forces (DFF), the so-called “South Lebanon Army.”

On April 17, 2000, the Secretary-General received formal notification from the Government of Israel that it would withdraw its forces from Lebanon by July 2000 “in full accordance with Security Council resolutions 425 (1978) and 426 (1978)”. He was further informed that in so doing the Government of Israel intended “to cooperate fully with the United Nations“. The Secretary-General informed the Security Council of this notification on the same day, stating that he had initiated preparations to enable the United Nations to carry out its responsibilities under those resolutions. On April 20, the Council endorsed the Secretary-General’s decision to initiate those preparations. 

As a first step, the Secretary-General sent his Special Envoy, Terje Roed-Larsen (Norway), together with the Force Commander of UNIFIL and a team of experts, to meet with the Governments of Israel and Lebanon and concerned Member States in the region, including Egypt, Jordan, and the Syrian Arab Republic. The delegation also met with the PLO and the League of Arab States. During the mission, United Nations cartographic, legal, and military experts examined the technical issues that would need to be addressed in the context of the implementation of resolution 425 (1978). Parallel to that mission, which took place between April 26 and May 9, 2000, the Secretary-General consulted with interested Member States, including those contributing troops to UNIFIL.

Starting on May 16, much sooner than anticipated, the IDF/DFF began to vacate its positions, amid an exchange of fire. Beginning on May 21, large crowds of Lebanese, accompanied by armed elements, entered villages in the Israeli-controlled area, and IDF/DFF vacated their position in great haste. At the same time, many of the Lebanese forces, together with their families, crossed into Israel. Others surrendered to the Lebanese authorities. Within a few days, those forces had completely disbanded. On May 25, the Government of Israel notified the Secretary-General that Israel had redeployed its forces in compliance with Security Council resolutions 425 (1978) and 426 (1978). The UN recognized and confirmed Israel’s withdrawal and compliance. This UN-endorsed boundary is referred to as “the Blue Line.”

UNIFIL continued to function in close cooperation with those authorities and no longer exercised any control over the area of operation. The Lebanese Government, however, still did not deploy its personnel down to the Blue Line. 

UNIFIL focused on the remaining part of its mandate: the restoration of international peace and security, the report continued. Pending a comprehensive peace, UNIFIL sought at least to maintain the ceasefire along the Blue Line, through patrols and observation from fixed positions and close contact with the parties, with a view to correcting violations and preventing the escalation of incidents. The Secretary-General believed that the need for the United Nations to perform such functions would continue to exist in the foreseeable future.

In 2005, the resumption of military measures, for which Hezbollah took credit, asserting its claimed prerogative to resist Israeli occupation of Lebanese territory by force, was disturbing, the Secretary-General said in a report. The United Nations had made abundantly clear that no violations of the Blue Line were acceptable. The continually asserted position of the Government of Lebanon that the Blue Line was not valid in the Shebaa farms area was not compatible with Security Council resolutions. The Council has recognized the Blue Line as valid for the purposes of confirming Israel’s withdrawal pursuant to resolution 425 (1978). The Government of Lebanon should heed the Council’s repeated calls for the parties to respect the Blue Line in its entirety.

The Secretary-General said that the 2005 rocket-firing incidents perpetrated by individuals allegedly affiliated with Palestinian militant factions demonstrated the volatility of the sector. Importantly, none of the incidents resulted in a military escalation, and for this the parties and UNIFIL deserved credit. Nevertheless, this type of incident presented a great risk to stability in the area.  The Lebanese Government continued to exercise the capacity it had demonstrated thus far to exert its security authority through various activities of the Joint Security Force, including prompt responses to specific incidents. More needs to be done, however, to meet the Security Council’s call for extended measures to ensure the return of effective governmental authority throughout the south, including through the deployment of additional Lebanese armed forces. Once again, the Secretary-General urged the Government to do its utmost to ensure calm and to exert full control over the use of force across its entire territory.

The escalation of hostilities in July 2006 between the IDF and Hezbollah demonstrated the impotence of UNIFIL as it failed to prevent attacks against Israel or to prevent terrorists from establishing position along Israel’s border. UNIFIL was given a broader mandate following the Second Lebanon War to prevent weapons smuggling to Hezbollah forces and to ensure they did not establish a presence near the border with Israel. On August 11, 2006, UN Security Council Resolution 1701 was passed and expanded UNIFIL’s mandate to ensure that Hezbollah would not operate in the area south of the Litani River. Furthermore, that area would serve as a buffer zone between Israel and Lebanon, free of armed personnel, assets, and weapons except UNIFIL and Lebanese Armed Forces (LAF).

Hezbollah systematically harassed the force, which has shown itself to be powerless to deter or respond to violations of UN resolutions by Hezbollah and the Lebanese Armed Forces (LAF). The organization has done little to stop the smuggling of weapons from Syria and allowed Hezbollah to develop a network of tunnels into Israel as well as to move weapons and fighters close to the border. Israel further accused UNIFIL of passing information given to them about the tunnels to the LAF, which then passed it to Hezbollah, who then attempted to conceal the tunnels on the Lebanese side. Rather than be disarmed, Hezbollah has remained an independent terrorist militia within Lebanon and built up an arsenal of more than 100,000 rockets targeting Israel.

In 2009, the UN confirmed that Hezbollah violated UN resolution by stockpiling arms and ammunition south of the Litani River following an explosion at an arms depot in the southern Lebanese village of Khirbet Silim.

In 2015, Hezbollah launched a cross-border ambush, firing an anti-tank missile at an Israeli convoy. Two IDF soldiers were killed and seven injured.

Since at least 2017, Hezbollah has circumvented UNIFIL and resolution 1701 by operating under the guise of an NGO, “Green Without Borders,” which has established over 30 outposts along the Israeli border. In August 2023, the US Department of the Treasury’s Office of Foreign Assets Control designated the Lebanon-based “Green Without Borders” and its leader, Zuhair Subhi Nahla.

In August 2018, UNIFIL personnel tried to take photographs near Majdel Zoun. Hezbollah operatives seized UNIFIL peacekeepers’ weapons and set fire to their vehicles.

In December 2018, the IDF exposed Hezbollah attack tunnels dug from southern Lebanon into northern Israel. One of the tunnels entered 40 meters in Israel. At Israel’s request, UNIFIL carried out an independent assessment confirming the existence of four tunnels close to the Blue Line in northern Israel. UNIFIL said the tunnels constitute violations of resolution 1701.

In 2019, a UNIFIL report stated that “Hezbollah activists in civilian clothes used force to prevent UNIFIL troops free movement, with roadblocks, harassment, threats, and theft of electronic equipment.”

When UNIFIL’s mandate was renewed in August 2020 (Resolution 2540), the force’s troop ceiling was reduced from 15,000 to 13,000, with the possibility of increasing that number if necessary. The resolution includes a provision for the strengthening of the reporting mechanism and condemns instances where Hezbollah breached Resolution 1701 and disrupted UNIFIL operations. The Secretary-General was also requested to provide an assessment of the continued relevance of UNIFIL’s resources and options for improving the efficiency and effectiveness between the mission and the Office of the United Nations Special Coordinator for Lebanon.

A 2022 amendment to its mandate allowed UNIFIL to act independently of the LAF; nevertheless, the UN expects the LAF to conduct “coordinated and adjacent patrols” with the organization, as well as to “protect UNIFIL movements and access.” Frequently, however, the LAF, along with Hezbollah, have obstructed the mission’s activities.

David Schenker noted, “In its biannual reports to the Security Council, UNIFIL openly concedes its failure to interdict weapons destined for Hezbollah. While the contingent acknowledges allegations of ‘arms transfers to non-State actors’ in Lebanon, i.e., Hezbollah, UNIFIL says it’s ‘not in a position to substantiate’ them.”

In December 2022, an Irish UNIFIL peacekeeper was killed and several others wounded after their convoy was shot at while driving through the town of Al-Aqbiya in southern Lebanon. Hezbollah was blamed but denied involvement.

During the summer of 2023, there were several provocative incidents by Hezbollah on the border. Two men climbed the security barrier and stole an IDF surveillance camera. In a separate incident, several men with face masks dressed in military camouflage fatigues walked along the border with Israel.

In July 2023, 20 Lebanese figures, presumably Hezbollah members, crossed about 80 meters into Israeli territory and placed two tents south of the Blue Line (inside Israel) in the Mount Dov region.

In August 2023, the UN Security Council renewed UNIFIL’s mandate for another year. Israel succeeded in persuading members to accept two key changes: allowing UNIFIL to operate independently without coordinating its activity with the Lebanese army and requiring the Lebanese government to facilitate UNIFIL’s access to any site with announced and unannounced patrols. The objective was to prevent Hezbollah interference in its operations and to give UNIFIL more freedom to monitor the group’s activities. UNIFIL still has no enforcement power, however, and it was too late to effect changes on the ground that included Hezbollah establishing positions closer to the Israeli border.

In September 2023, Israel’s Defense Minister Yoav Gallant told the UN Secretary-General that “the potential for escalation on the northern border has risen in the wake of serious violations of sovereignty by Lebanon. Iran is pushing Hezbollah to act.” At the time, Gallant presented intelligence, including maps and photographs highlighting Hezbollah’s recently established lookouts and increased presence on the border and attempts to create friction with IDF forces.

On October 8, 2023, a day after Hamas’s attacks on southern Israel, Hezbollah began to fire rockets, missiles, and anti-tank weapons against both Israeli military and civilian targets. Before the IDF’s ground incursion in Lebanon on October 2024, Hezbollah fired over 9000 projectiles at Israel.

On March 30, 2024, several UNIFIL workers were wounded. Israel was initially blamed but it was later learned the patrol had driven over a bomb placed by Hezbollah.

In August 2024, the UN Security Council renewed UNIFIL’s mandate for another year. This decision was made amid near-daily attacks on Israeli communities and military posts along the border by Hezbollah-led forces following Hamas’s October 7 attack, with Hezbollah claiming these actions are in support of Gaza during the ongoing war.

On October 1, 2024, the IDF launched a ground incursion targeting the Hezbollah infrastructure embedded close to the Israeli border to allow displaced Israeli residents of the north to return home safely. At that point, UNIFIL forces were encouraged by Israeli officials to leave their posts and retreat north for their safety.

In the first three weeks of the operation, the IDF uncovered and exposed the extent of Hezbollah force build-up of military infrastructure and hardware, some of which was found near UNIFIL posts. According to IDF, Hezbollah had fired around 25 rockets and missiles in the last month close to UNIFIL sites.

Since the ground operation began, there have been two claims that Israel has violated UNIFIL’s mandate. In one incident, an Israeli tank backed into the gates of a UNIFIL post. According to the IDF, the incident took place as the tank was under fire from Hezbollah and evacuating injured soldiers. According to the IDF, they maintained lines of communication with the UNIFIL throughout the incident, emphasizing that at no point were UNIFIL personnel at risk.

On October 7, 2024, it was reported that UNIFIL forces in south Lebanon refused an Israeli request to move five kilometers north to avoid the fighting between the IDF and Hezbollah, citing concerns that Israeli tanks near the peacekeepers were endangering their troops. Ireland, which contributes 347 soldiers to UNIFIL’s 10,000-strong contingent, rejected the request despite its soldiers being near the fighting. Irish President Michael Higgins criticized Israel for allegedly threatening the peacekeeping force and violating UN Resolution 1701, which mandates respect for UNIFIL’s role. In response, the Israeli embassy in Dublin denied the accusations, stating that the IDF had asked UNIFIL to relocate for their safety, not as a threat. UNIFIL spokesperson Andrea Teneti affirmed that the peacekeeping mission would continue its duties and remain in contact with all relevant parties to de-escalate tensions.

On October 10, 2024, Italian Defense Minister Guido Crosetto condemned Israeli forces for firing on UN peacekeeper positions in Lebanon, calling it a potential war crime. He claimed that the attacks, which injured two UNIFIL peacekeepers, were intentional and a breach of international military law. Italy, a key contributor to the UN peacekeeping mission in Lebanon, summoned the Israeli ambassador and protested the incident to Israel’s government, demanding an explanation. Despite its strong support for Israel in its conflicts with Hamas and Hezbollah, Italy rejected Israel’s attempts to influence the UN mission’s operations along the Lebanon-Israel border.

On October 11, 2024, the IDF acknowledged firing at a threat near a UN peacekeeping position in southern Lebanon, which resulted in a hit that injured two UNIFIL personnel. The incident occurred during an exchange where Israeli soldiers identified and responded to an immediate threat. The UN confirmed the injuries after explosions occurred near its Naqoura headquarters. This was the second such incident in two days, following the injury of two other peacekeepers the day prior. The IDF, which had instructed UNIFIL to take shelter before the event, expressed concern and conducted a thorough investigation.

On October 13, 2024, Prime Minister Benjamin Netanyahu urged UN Secretary-General Antonio Guterres to withdraw UNIFIL troops from combat zones in South Lebanon, claiming their presence endangers their safety. He accused Hezbollah of using UNIFIL forces as human shields during attacks on Israel and noted that the IDF had repeatedly requested UNIFIL relocate to safer areas, which was denied. While expressing regret for any harm to UNIFIL personnel, he stressed that their removal is essential to prevent future incidents. The UN Security Council and various European leaders condemned Israeli fire on UNIFIL positions, with Italy and France labeling the actions “outrageous” and contrary to international law.

On October 14, 2024, in response to these accusations, Netanyahu reiterated that Hezbollah was exploiting UNIFIL positions to launch attacks on Israel, dismissing claims of deliberate targeting of peacekeepers as “completely false.” He emphasized that Israel’s military operations are aimed at Hezbollah, which has conducted numerous attacks against Israeli cities. Netanyahu asserted that UNIFIL’s best option for ensuring personnel safety is to comply with Israel’s request to withdraw from conflict areas, highlighting Israel’s commitment to avoiding civilian casualties while asserting its right to defend itself against Hezbollah’s aggression.

On October 16, 2024, UNIFIL reported that an Israeli Merkava tank fired on their watchtower near Kfar Kela, damaging the tower and destroying two cameras. In an interview with Israeli television the same day, UNIFIL spokesperson Andrea Tenenti emphasized the mission’s ongoing presence is based on a request from the Security Council to maintain monitoring capabilities and provide humanitarian aid to civilians in southern Lebanon. He stated that the future of their operations will depend on the Security Council’s decisions if conditions become untenable. 

On October 20, 2024, a Danish citizen who served in UNTSO (United Nations Truce Supervision Organization) in southern Lebanon testified about UN bodies’ conduct toward Hezbollah. In an interview with the Danish newspaper BT, he stated, “We were completely dependent on Hezbollah; our freedom of movement was limited.” He explained that when UN personnel tried to access areas where Hezbollah was suspected of operating, they were arrested: “They were aggressive and blocked the way. They didn’t want us to see what they were doing.” He also revealed that they were instructed to avoid Hezbollah terrorists and described a “total lack” of ability to address multiple violations of Resolution 1701. “We reported on a daily basis, nothing happened. The UN is incompetent.”

On October 21, 2024, it was reported that Hezbollah operatives captured during recent IDF operations in southern Lebanon revealed that the group had bribed UNIFIL personnel to exploit their positions and seized control of UNIFIL cameras near the Israeli border. These revelations underscore UNIFIL’s failure to prevent Hezbollah’s activities, leading Israel to shift its focus towards securing commitments from the Lebanese army for any future agreements, as UNIFIL is seen as ineffective and accused of frequently collaborating with Hezbollah.

On October 22, 2024, UNIFIL alleged that Israeli troops fired at peacekeepers observing IDF soldiers conducting house-clearing operations near Dhayra in southern Lebanon, prompting the peacekeepers to retreat for safety. The IDF, however, stated it was unaware of any such incident after reviewing the claims while noting its ongoing contact with UNIFIL and emphasizing the dangers Hezbollah activities pose to the peacekeeping force.

On October 29, 2024, eight Austrian UNIFIL soldiers sustained minor injuries in a rocket strike on the peacekeeping force’s Naqoura headquarters near the Israeli border. Austria’s defense ministry condemned the attack and called for an immediate investigation, noting that the source of the strike was unknown and that none of the soldiers required urgent medical attention. UNIFIL suggested that “Hezbollah or an affiliated group” was likely responsible for the attack, while the IDF reported that its own examination confirmed Hezbollah’s involvement in the rocket strike.

On November 7, 2024, UNIFIL reported that IDF excavators and a bulldozer had damaged a fence and a concrete structure at a UNIFIL position in Ras Naqoura. However, the IDF stated that no activity had taken place within the UNIFIL-controlled area.

On November 13, 2024, the ALMA Research & Education Center reported that a building located just 200 meters from a UNIFIL base and situated in a civilian area in the western part of Kfar Kela was found to contain equipment and weapons prepared for Hezbollah operations. Despite UNIFIL vehicles passing by the site multiple times daily, no indication of the threat was raised.

According to UNIFIL, on November 15, 2024, an unexploded IDF artillery shell struck the Italian contingent’s base in the UN peacekeeping mission in southern Lebanon. Italian Foreign Minister Antonio Tajani protested the “unacceptable” incident in a conversation with Israeli Foreign Minister Gideon Sa’ar, who assured him an “immediate investigation” would be conducted. Tajani stressed the need to ensure the safety of UNIFIL personnel and condemned attacks on UN forces.

On November 19, 2024, eight rockets struck the headquarters of the Italian contingent of the UN peacekeeping force in Shama, southern Lebanon. While no injuries were reported, five Italian soldiers were monitored in the base’s medical facility. Initially, Italy’s Defence Minister Guido Crosetto blamed Israel for the attack, but a Defence Ministry source later clarified that Hezbollah was responsible. The rockets hit outdoor areas and a supply warehouse where no soldiers were present. UNIFIL confirmed that the missiles damaged the base’s maintenance workshop but did not assign blame. Earlier, the IDF reported that a Hezbollah rocket attack damaged another UNIFIL position in the village of Ramyeh. The UN later stated that the attack was “most likely fired by non-State actors within Lebanon.”

On the same day, Argentina informed UNIFIL of its decision to withdraw from the force, marking the first sign of divisions within the mission amid escalating violence along the border. A UNIFIL spokesperson confirmed that Argentina requested its officers to return home but did not provide further details on the reason for their departure, deferring to Argentina’s government. Argentina, one of 48 countries contributing peacekeepers to UNIFIL, had three staff members in Lebanon. 

On November 22, 2024, Four Italian UN peacekeepers were injured in a rocket attack on a UNIFIL base in Shama, southern Lebanon, marking the third such attack on the base in a week. The rockets, launched by Hezbollah or its affiliates, struck a bunker and logistics area, causing a fire. Hezbollah has not addressed the attack but claimed earlier strikes on Israeli forces in the area. Italian Prime Minister Giorgia Meloni expressed “profound indignation” over the news and said such attacks were “unacceptable.”

On November 26, 2024, a ceasefire in south Lebanon was brokered, with the agreement set to take effect at 4:00 am (Israel time) the following day. This ceasefire established a 60-day truce, marking a significant temporary de-escalation in hostilities between Lebanon and Israel. 

During the truce, the Lebanese army will deploy into southern Lebanon to assume control of the area. At the same time, UNIFIL will be significantly reinforced to monitor and enforce the ceasefire. International forces, including British, German, and French troops, will participate in this enhanced UNIFIL presence. This international reinforcement is designed to prevent Hezbollah from re-establishing itself in the region and to ensure stability. On November 29, 2024, the U.S. Central Command (CENTCOM) announced that Major General Jasper Jeffers (SOCCENT) and Amos Hochstein, Senior Advisor to the President, will co-chair a U.S.-led mechanism to monitor and implement the Israel-Lebanon cessation of hostilities. The group includes the Lebanese Armed Forces (LAF), UNIFIL, and France. 

The Hezbollah attacks from October 8, 2023, as of October 2024, resulted in the deaths of 30 Israeli civilians (among them 12 children) and 43 soldiers, as well as the internal displacement of over 60,000 Israeli civilians.

As of August 2020, UNIFIL has a budget of more than $500 million

As of September 2024, UNIFIL comprised approximately 10,000 peacekeepers from 50 countries. Indonesia is the most significant contributor, providing over 1,200 personnel, followed by India, Ghana, Nepal, Italy, Spain, France, and Ireland. 

As of October 2024, 337 UNIFIL personnel have been killed in Lebanon since it began its operations. 

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