Recent years have seen unprecedented events in Yemen leading to a political transition with a clear roadmap for peaceful change.
The brink of civil war and the Transition Agreement
The United Nations has been facilitating Yemen’s political transition since 2011, when Special Adviser Jamal Benomar assumed a good offices role on behalf of the Secretary-General. The country was on the brink of civil war: fighting had killed and wounded hundreds. Yemenis rallied in squares, demanding that President Ali Abdullah Saleh step down.
Special Adviser Benomar has helped pave the way for a peaceful transition that responds to Yemenis’ aspirations for democratic change. His first mission began amid continued political deadlock, as President Saleh refused to sign a Gulf Cooperation Council initiative. Face-to-face negotiations between the ruling party and the opposition, facilitated by Special Adviser Benomar, led to the signing of a Transition Agreement in Riyadh on 23 November 2011. Serving as a roadmap for the transition, the Agreement secured inclusive participation, including for women and youth, in the political process for the first time.
Presidential elections and the National Dialogue
A further milestone was marked on 21 February 2012, when presidential elections transferred power to the then Vice-President Abed Rabbo Mansour Hadi in a largely peaceful environment with high voter participation. A National Unity Government was formed, led by Prime Minister Mohamed Salem Basendwa. This was followed by six-months of preparations for a comprehensive national dialogue. Working with a high degree of consensus, and the active support of the Special Adviser, a Preparatory Committee agreed on the structure, organization, and rules of procedure of the National Dialogue Conference (NDC). The Special Adviser and his team developed an integrated United Nations programme in support of the national dialogue process, including the creation of a secretariat and the provision of technical expertise.
18 March 2013 saw the successful launching of Yemen’s National Dialogue Conference. The 565 delegates of the Conference represented all Yemeni constituencies. For ten months, they addressed subjects such as the conflict in the North, the Southern question, political and security reforms, state structure, governance, rights and freedoms, and transitional justice. On 25 January 2014, the NDC concluded successfully, capturing the attention of the Arab region and the world.
A promising Outcome Document was adopted with an agreement on a set of principles for a new Yemen representing a complete break from the history of conflict and oppression, and setting the foundations for a new state on the basis of federalism and democracy, pursuant to the principles of rule of law and equal citizenship. Despite Yemen being among the most conservative countries in the region, the Document featured 30 per cent representation for women at all levels of government. The Constitution Drafting Commission commenced work in March 2014, marking the official launch of drafting a new constitution in accordance with the Outcome Document. A National Body involving all political factions oversees the work of the Commission. Holding a referendum and general elections will follow.
Since April 2011, Special Adviser Benomar travels frequently to Yemen and other countries to lead the United Nations’ efforts on the ground in support for the political transition. In addition, he established an office in Sana’a in mid-2012 to provide substantive support through political facilitation, technical assistance and outreach initiatives.
Security Council support
The Security Council has been closely monitoring the situation since the start of the uprising in 2011, speaking with one voice in support of the transition. Since then, the Council has unanimously adopted three resolutions:
- Resolution 2014 (2011) calling for implementation of a political settlement based upon the GCC Initiative and requesting the Secretary-General to continue his good offices;
- Resolution 2051 (2012) reaffirming the need for the full and timely implementation of the Transition Agreement and signalling potential sanctions; and
- Resolution 2140 (2014) supporting the implementation of the National Dialogue outcomes, reaffirming the need for the full and timely implementation of the political transition, and establishing a sanctions regime under Chapter VII of the United Nations Charter.
Following a visit by the Secretary-General in November 2012, Security Council members visited Sana’a in January 2013.
Challenges
In spite of the international support, challenges persist in Yemen. They range from longstanding conflicts in the north and south, to AlQaeda-linked terrorism and armed groups; and from targeted killings of military officials and politicians to attacks on infrastructure and systemic obstruction. The economy is suffering decline, and the humanitarian situation remains extremely grave. Nearly half the population is food insecure with no access to clean water and other basic services. A quarter of a million children are severely malnourished.
Nevertheless, the political transition is moving forward, and remains one of a kind in the context of the Arab Spring and in the Middle East. Yemen is ranked the second highest country in the world for arms possession after the United States. It is the poorest country in the region, with a highly tribal society. Yet, unlike other Arab Spring countries, it has undertaken the only negotiated and most inclusive transition, with a clear roadmap for peaceful change. The United Nations will continue to support this transition in close cooperation with the Yemeni people, the Gulf Cooperation Council and international partners.
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