Updated May 28, 2021
Libya and U.S. Policy
Ten years after the start of a 2011 uprising that toppled
On May 21, UNSMIL head Ján Kubiš said, “progress on
longtime authoritarian leader Muammar al Qadhafi, Libya
key issues such as the reopening of the coastal road
has yet to make a transition to stable governing
between Sirte and Misrata and the start of the withdrawal of
arrangements. Elections and diplomacy have produced a
foreign mercenaries, fighters and foreign forces has stalled.
series of interim governments (Figure 1), but militias, local
...UNSMIL continues to receive reports of setting up of
leaders, and coalitions of national figures backed by
fortifications and defensive positions along the Sirte-Jufra
competing foreign patrons have remained the most
axis and South Libya, air force training activities, cargoes
powerful arbiters of public affairs.
of arms and military supplies into West, East, and South
Libyan military bases; as well as the continuing presence of
Conflict re-erupted in Libya in April 2019, when a coalition
foreign elements, mercenaries and assets, thus entrenching
of armed groups led by Qadhafi-era military defector
the division of Libya.”
Khalifa Haftar known as the Libyan National Army
movement (LNA, in Arabic: “Libyan Arab Armed Forces,”
Figure 1. Libya: Areas of Influence
LAAF) leveraged support from Russia, the United Arab
Emirates (UAE), and Egypt to attempt to seize the capital,
Tripoli, from an interim Government of National Accord
(GNA) and local militias. With Turkish military support,
the GNA and western Libyan militias forced the LNA to
withdraw. Libya has remained divided since, with foreign
forces remaining present and the main opposing coalitions
separated by a line of control west of Sirte (Figure 1).
During 2020, multilateral diplomatic initiatives helped
achieve a ceasefire, and in April 2021, the United Nations
(U.N.) Security Council endorsed plans to deploy civilian
ceasefire monitoring personnel at Libyans’ request.
Delegates to a U.N.-convened Libyan Political Dialogue
Forum (LPDF) and members of Libya’s House of
Representatives (HOR, interim parliament last elected in
2014) have approved an interim executive authority and
interim Government of National Unity (GNU). The U.N.
Support Mission in Libya (UNSMIL) is facilitating
discussions among LPDF members, the HOR, and the High
Council of State (HCS, an advisory representative body) to
establish a constitutional basis and law for parliamentary
and presidential elections planned for December 24, 2021
(the seventieth anniversary of Libyan independence). U.S.

officials continue to call for an end to foreign interference
2011 Uprising topples Muammar al Qadhafi.
in Libya and for holding the elections as scheduled.
2012 Parliamentary elections. Transitional cabinet seated.
U.N. Endorses Ceasefire Monitoring
2014 Constitutional referendum and parliamentary elections.
Disputed results fuel conflict. U.S. diplomats depart.
In October 2020, U.N.-backed talks among members of a
2015 International mediation yields agreement to form
Joint Military Commission (JMC, or “5+5” because of its
Government of National Accord (GNA).
equal make-up of GNA/LNA delegates) established a
2016 Parliament withholds endorsement of GNA. Islamic
temporary ceasefire. The agreement called for the departure
State forces defeated in Sirte with U.S. military support.
of mercenaries and foreign fighters along with the
2018 Libyan National Army consolidates control in east Libya.
suspension of foreign training and the departure of trainers.
2019 Libyan National Army launches offensive against Tripoli.
The ceasefire has held through May 2021, although foreign
2020 U.N. supports ceasefire negotiations, selects Libyan
forces have not departed. In April 2021, the U.N. Security
Political Dialogue Forum (LPDF) members. LPDF agrees
Council endorsed Resolution 2570, approving the “scalable
to roadmap, plans December 2021 elections.
and incremental deployment” of ceasefire monitors and
2021 LPDF selects Interim Executive Authority members.
strongly urging member states “to respect and support the
HOR approves interim Government of National Unity
full implementation of the ceasefire agreement, including
cabinet. U.N. Security Council endorses ceasefire
through the withdrawal of all foreign forces and
monitoring and date for December 2021 election.
mercenaries from Libya without delay.” U.N. officials plan
Source: Prepared by CRS using media and social media reporting.
initially to deploy five unarmed monitors to Tripoli.
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Libya and U.S. Policy
U.S. officials reported in January 2021 that forces affiliated
U.S. Policy and Outlook
with the Wagner Group of Russia were constructing
For years, U.S. diplomats and officials have emphasized
sophisticated defensive fortifications in LNA-controlled
political solutions to Libya’s conflicts, but have not
central Libya. Turkish military advisers continue to train
convinced or compelled Libyans and their various patrons
and assist western Libyan forces in accord with a 2019
to disengage from confrontation. U.S. officials support
Turkey-GNA security agreement. Both sides have recruited
UNSMIL-led negotiation processes and welcomed the
and deployed Syrian militias. Fighters from neighboring
establishment of the interim executive authority and GNU.
Chad left Libya in April 2021 and launched operations that
U.S. Special Envoy for Libya and Ambassador to Libya
resulted in the death of Chad’s long-time president, Idriss
Richard Norland emphasizes U.S. support for holding
Déby. The U.S. Embassy in Libya asserted that the Chadian
elections in December 2021 and for the withdrawal of
fighters’ offensive “again highlights the urgent need for a
foreign forces from Libya as required by the October 2020
unified, stable Libya with control over its borders.”
ceasefire agreement. In May 2021, a State Department
Civilian Protection and Human Rights
spokesperson said “this includes the need for the departure
of Russian mercenary and proxy forces, Turkish forces and
Through December 2020, fighting between LNA forces,
all foreign military forces, mercenaries, proxies and foreign
GNA supporters, and anti-LNA militias had killed more
fighters, including those from Syria, Chad and Sudan, and
than 500 civilians and displaced more than 200,000 people
the need to end any support for foreign military
according to U.N. estimates. U.N. officials estimate that as
intervention, including from the UAE.” U.S. officials
many as 1.2 million people in Libya (out of 7 million) will
continue to balance Libya-related concerns with other U.S.
require some form of humanitarian assistance in 2021. U.N.
goals in relation to foreign actors.
agencies have identified more than 575,000 foreign
migrants, more than 245,000 internally displaced persons,
U.S. officials engage Libyans and monitor U.S. aid
and more than 43,000 refugees in Libya. Migrants remain
programs via the Libya External Office (LEO) at the U.S.
especially vulnerable to extortion and other abuses.
Embassy in Tunisia. Press reports suggest that the
Interim Government of National Unity
Administration is assessing the security and logistical
requirements necessary to return U.S. diplomats to Libya on
In 2020, U.N. officials selected and convened a 75-member
a full time basis. The U.S. military has supported U.S.
Libyan Political Dialogue Forum (LPDF) to restart the
country’s disrupted political transition.
diplomatic initiatives in recent years and has monitored and
Based on an agreed
reported on the activities of Russian mercenaries and
roadmap, in February 2021, members of the LPDF
military equipment in Libya. U.S. forces have conducted
nominated an interim three-person Presidential Council and
intermittent targeted strikes against terrorist targets in Libya
interim Prime Minister to replace the GNA and lead the
(most recently acknowledging strikes in September 2019)
country until elections in December 2021. Mohamed Menfi
citing the 2001 AUMF as well as constitutional authorities.
of the eastern city of Tobruk serves as chairman of the
According to UNSMIL, as of 2021, the Islamic State
Presidential Council, with southerner Musa Al Koni and
organization and Al Qaeda fighters have been
westerner Abdullah Al Lafi as his deputies. On March 10,
“operationally weakened” in Libya but remain a threat. In
the House of Representatives (HOR) approved the cabinet
May 2021, UNSMIL reported that these groups “represent a
proposed by interim Prime Minister Abdul Hamid Dabaiba,
direct threat against civilian targets, government institutions
an engineer and former Qadhafi-era official from the
and the United Nations.”
western city of Misrata.
Oil Sector Recovers, Finances Strained
The U.N. Security Council has authorized financial and
travel sanctions on those responsible for threatening “the
Libya has the largest proven crude oil reserves in Africa,
peace, stability or security of Libya,” obstructing or
but conflict, political rivalry, and neglected infrastructure
undermining “the successful completion of its political
impede the energy sector’s operations. As of April 2021,
transition,” or supporting others who do so. In parallel to
Libya produced roughly 1.2 million barrels of oil per day,
these U.N. measures, U.S. executive orders provide for U.S.
down from 1.4 million barrels per day in 2011. Oil revenues
sanctions on those threatening peace in Libya.
accrue to a National Oil Corporation account in accordance
with an U.N.-brokered agreement. Since 2011, public debt
Congress has conditionally appropriated funding for
has deepened and currency reserves have declined. Millions
transition support, stabilization, security assistance, and
of Libyan households depend on public sector employment
humanitarian programs for Libya since 2011. In the 117th
and subsidies, which dominate state spending. Ongoing
Congress, companion legislation introduced in the House of
disputes over the leadership of state financial institutions,
Representatives and Senate (H.R. 1228 and S. 379), would
oil sector spending, and budget priorities underscore the
authorize future U.S. assistance, provide a legislative basis
continued influence of political rivalries on state finances.
for U.S. sanctions, and establish new reporting
Conflict Hampers COVID-19 Response
requirements. Congress allocated not less than $30 million
in FY2021 aid for “stabilization assistance for Libya,
Years of division and conflict have weakened the Libyan
including support for a United Nations-facilitated political
health care system’s ability to mitigate risks from
process and border security” under P.L. 116-260.
Coronavirus Disease 2019 (COVID-19). In May 2021,
UNSMIL reported that “the COVID-19 pandemic
continued to overwhelm the health system in Libya.”
Christopher M. Blanchard, Specialist in Middle Eastern
Libyan officials have reported more than 177,000 COVID-
Affairs
19 cases and more than 3,000 COVID-19 deaths. Testing
IF11556
and public health monitoring capacity remain limited.
https://crsreports.congress.gov

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Libya and U.S. Policy


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https://crsreports.congress.gov | IF11556 · VERSION 12 · UPDATED

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