link to page 1 
August 26, 2021
United Nations Interim Force in Lebanon (UNIFIL)
Since 1978, the United Nations Interim Force in Lebanon
Figure 1. UNIFIL Area of Operations
(UNIFIL) has been deployed in the Lebanon-Israel-Syria
triborder area. The formal boundaries dividing the three
countries remain disputed. The United States has supported
UNIFIL financially and diplomatically, with the aim of
bolstering and expanding the authority of the Lebanese
Armed Forces (LAF) in UNIFIL’s operating area (see
Figure 1) in southern Lebanon, a region historically
dominated by Hezbollah (also spelled Hizballah).
Evolution of UNIFIL Mandate
UNIFIL’s initial mandate was to confirm the withdrawal of
Israeli forces from southern Lebanon, restore peace and
security, and assist the Lebanese government in restoring its
authority in southern Lebanon (a traditionally Shi’a area
that became a Hezbollah stronghold in the 1980s). In May
2000, Israel withdrew its forces from southern Lebanon.
The following month, the United Nations identified a 120
km interim boundary line between Lebanon and Israel to
use as a reference for the purpose of confirming the
withdrawal of Israeli forces. The Line of Withdrawal,
commonly known as the Blue Line, is not an international
border demarcation between the two states.
Following the 2006 Israel-Hezbollah war, UNSCR 1701
(2006) increased UNIFIL’s troop ceiling and expanded its
mandate to include monitoring the cessation of hostilities
Source: Created by CRS. Boundaries from ESRI and U.S. State
between the two sides, accompanying and supporting the
Department.
LAF as they deployed throughout southern Lebanon, and
Notes: UNDOF = United Nations Disengagement Observer Force.
helping to ensure humanitarian access to civilian
Size and Structure
populations. UNSCR 1701 authorized UNIFIL to assist the
Lebanese government in the establishment of “an area free
UNIFIL is headquartered in the Lebanese town of Naqoura,
of any armed personnel, assets and weapons other than
14 miles south of Tyre. Its leadership rotates among troop-
those of the Government of Lebanon and of UNIFIL”
contributing states; since 2018 UNIFIL has been led by
between the Blue Line and the Litani River, which UNIFIL
Major General Stefano Del Col (Italy). As of August 2021,
defines as its area of operations (See Figure 1). UNSCR
UNIFIL deploys approximately 10,300 troops from 46
1701 also calls upon the government of Lebanon to secure
countries in a 1060 square km zone roughly a third the size
its borders and asks UNIFIL “to assist the Government of
of Rhode Island. The largest troop contributing countries
Lebanon at its request.”
are Italy, Indonesia, Nepal, Ghana, and India. (U.S. forces
do not participate in UNIFIL). UNIFIL also has a civilian
Implementation of UNSCR 1701
staff of roughly 800. UNIFIL’s mandate falls under Chapter
According to UNIFIL, “Any unauthorized crossing of the
VI of the U.N. Charter, which allows for the use of force
Blue Line by land or by air from any side constitutes a
primarily in self-defense, rather than Chapter VII, which
violation of Security Council resolution 1701.” Since 2007,
would enable enforcement by military means. Since 1978,
UNIFIL has worked with Lebanese and Israeli authorities to
UNIFIL has reported 323 fatalities. Three-quarters of
mark the Blue Line on the ground via 272 blue barrels, a
reported fatalities occurred prior to 2000.
contested process that stalled in 2017 and remains
unfinished. UNIFIL continues to monitor violations of
Maritime Task Force
UNSCR 1701, and the U.N. Secretary-General reports
Since the discovery in 2009 of large offshore gas fields in
regularly to the U.N. Security Council on the
the Mediterranean, unresolved issues over the demarcation
implementation of UNSCR 1701. These reports have listed
of Lebanon’s land border with Israel have resulted in
violations by Hezbollah, such as the construction of
disputes over maritime boundaries, and in 2011 Lebanese
underground tunnels that cross beneath the Blue Line, as
authorities called on the U.N. to establish a maritime
well as violations by Israel, such as regular incursions into
equivalent of the Blue Line. U.N. officials stated that
Lebanese airspace.
UNIFIL does not have the authority to establish a maritime
boundary. However, UNIFIL has maintained a Maritime
https://crsreports.congress.gov
United Nations Interim Force in Lebanon (UNIFIL)
Task Force (MTF) since 2006, which operates along the
mandate, the mission still serves a priority U.S.
entire length of the Lebanese coastline and assists the
national security interest by maintaining security
Lebanese Navy in preventing the entry of unauthorized
and stability between Israel and Lebanon. It also
arms or other materials to Lebanon. The MTF was
assists the Lebanese Government in extending its
previously composed of six ships, one each from
authority
over
southern
Lebanon,
which
Bangladesh, Brazil, Germany, Greece, Indonesia, and
subsequently helps mitigate the ability of Hizballah
Turkey, and was commanded by Brazil from 2011 to 2020.
and other militias to launch attacks against Israel.
In December 2020, Brazil withdrew from the MTF.
Germany subsequently assumed command of the force,
Recent Developments
which now comprises five vessels.
A July 2021 U.N. Secretary-General report on the
implementation of UNSCR 1701 noted continued violations
Debates over UNIFIL & U.S. Policy
of UNSCR 1701 by multiple parties. UNIFIL stated that it
U.S. Administrations have disagreed over the mission and
had not yet gained full access to several locations of
size of UNIFIL. Some U.S. officials have described
interest, including some sites connected with Green
UNIFIL as a stabilizing presence in southern Lebanon,
Without Borders, a nongovernmental organization
stating that Hezbollah strikes across the Blue Line have
reportedly aligned with Hezbollah. UNIFIL also stated that
significantly decreased since UNSCR 1701 (2006)
individuals obstructed its efforts to install cameras inside
increased UNIFIL’s troop ceiling from 2,000 to 15,000. A
UNIFIL positions along the Blue Line; the LAF requested
former U.S. Ambassador to Lebanon has noted that
time to address local concerns before UNIFIL proceeds
“UNIFIL’s value in constraining Hezbollah comes down to
with installation.
its size. Through sheer numbers, it essentially saturates the
south. Even if it can evade UNIFIL scrutiny at times, as the
U.S. Funding
tunnels show, Hezbollah does not have the almost complete
The United States provides assessed funding to UNIFIL
freedom of movement in the south that it enjoyed under
through the Contributions for International Peacekeeping
‘old’ UNIFIL.”
Activities (CIPA) account in annual State/Foreign
Operations appropriations bills. In FY2021, the estimated
In contrast, the Trump Administration asserted that UNIFIL
U.S. UNIFIL assessment is $144 million. The current U.S.
“patrols and checkpoints are of plainly limited use when
peacekeeping assessment (including for UNIFIL) is
offending parties can simply hide weapons and tunnel
27.89%. Since the mid-1990s Congress has capped U.S.
entrances on so-called ‘private property.’” The United
peacekeeping payments at 25%, leading to the
States and Israel accused Hezbollah of hiding weapons in
accumulation of U.S. arrears (about $1 billion since
violation of UNSCR 1701, and pushed for the addition of
FY2017). The Administration’s FY2022 budget request
language to UNIFIL’s mandate that would allow UNIFIL to
includes funds to begin repaying some of these arrears.
access and search private property for illicit Hezbollah
weapons. Trump Administration officials criticized the
Outlook
government of Lebanon for not facilitating UNIFIL access
The challenges facing the LAF stemming from Lebanon’s
to key sites, such as the Lebanese origin points of
ongoing economic crisis could put additional pressure on
Hezbollah underground tunnels that cross into Israel.
UNIFIL operations. The devaluation of the Lebanese lira
and subsequent inflation have impacted LAF salaries, as
In response to U.S. pressure, additional provisions were
well as its ability to buy foreign-made spare parts and other
added to annual resolutions reauthorizing UNIFIL’s
critical components. In mid-2021, LAF Commander Joseph
mandate. In 2017, U.S. officials successfully advocated for
Aoun stated, “If unmitigated, the economic and financial
language requiring UNIFIL to notify the Security Council
crisis will inevitably lead to the collapse of all state
whenever it encountered roadblocks or other obstacles;
institutions including the LAF.”
these incidents are now noted in regular U.N. Secretary-
General reports on the implementation of UNSCR 1701. In
The breakdown of Lebanon’s security forces could have
2019, the Security Council approved U.S.-proposed
broad domestic and regional implications, potentially
language calling for the Secretary-General to assess the
reducing the ability of Lebanon’s government to manage
effectiveness of UNIFIL; the resulting report highlighted
social unrest or maintain security along its borders with
several structural weaknesses. In August 2020 the Security
Israel and/or Syria. If economic and/or security conditions
Council voted to reauthorize UNIFIL but also reduced
limit LAF deployments to the south, UNIFIL operations in
UNIFIL’s maximum force strength from 15,000 to 13,000
border areas could face additional challenges. A 2020 U.N.
troops. Then-U.S. Ambassador to the United Nations Kelly
Secretary-General assessment of UNIFIL (S/2020/473)
Craft stated, “The reduction of the ceiling from 15,000
stated that in some instances, the local population hindered
troops to 13,000 is an important step toward right-sizing a
UNIFIL patrols unless they were accompanied by the LAF.
mission that has for years been over-resourced given the
The U.N. assessment also stated that LAF deployments to
limits on its freedom of movement and access.”
the south had been delayed as the LAF focused on
countering threats to border security stemming from the
The Biden Administration’s FY2022 budget request states,
conflict in neighboring Syria, as well as crowd control
functions following 2019 domestic protests.
While UNIFIL has not been allowed full access to
suspected tunnel sites and other areas of concern
Carla E. Humud, Analyst in Middle Eastern Affairs
along the border demarcation as required by its
IF11915
https://crsreports.congress.gov
United Nations Interim Force in Lebanon (UNIFIL)
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11915 · VERSION 1 · NEW