United Nations S/2018/68

Security Council Distr.: General

26 January 2018

Original: English

Letter dated 26 January 2018 from the Panel of Experts on Yemen

mandated by Security Council resolution 2342 (2017) addressed to
the President of the Security Council

The members of the Panel of Experts on Yemen have the honour to transmit
herewith the final report of the Panel, prepared in accordance with paragraph 6 of
resolution 2342 (2017).
The report was provided to the Security Council Committee established
pursuant to resolution 2140 (2014) on 9 January 2018 and considered by the
Committee on 23 January 2018.
We would appreciate it if the present letter and the report were brought to the
attention of the members of the Security Council and issued as a document of the
Council.

(Signed) Ahmed Himmiche

Coordinator
Panel of Experts on Yemen
mandated by Security Council resolution 2342 (2017)
(Signed) Fernando Rosenfeld Carvajal
Expert
(Signed) Dakshinie Ruwanthika Gunaratne
Expert
(Signed) Gregory Johnsen
Expert
(Signed) Adrian Wilkinson
Expert

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Final report of the Panel of Experts on Yemen

Summary
After nearly three years of conflict, Yemen, as a State, has all but ceased to exist.
Instead of a single State there are warring statelets, and no one side has either the
political support or the military strength to reunite the country or to achieve vict ory on
the battlefield.
In the north, the Houthis are working to consolidate their hold on Sana ’a and
much of the highlands after a five-day street battle in the city that ended with the
execution of their one-time ally, former President Ali Abdullah Saleh (YEi.003), on
4 December 2017. In the days and weeks that followed, the Houthis crushed or
co-opted much of what remained of the former President’s network in Yemen.
In the south, the Government of President Abd Rabbuh Mansur Hadi was
weakened by the defection of several governors to the newly formed Southern
Transition Council, which advocates for an independent south Yemen. Another
challenge for the Government is the existence of proxy forces, armed and funded by
member States of the Saudi Arabia-led coalition, who pursue their own objectives on
the ground. The battlefield dynamics are further complicated by the terrorist groups
Al-Qaida in the Arabian Peninsula (AQAP) and Islamic State in Iraq and the Levant
(ISIL) (Da’esh), both of which routinely carry out strikes against the Houthis, the
Government and Saudi Arabia-led coalition targets.
The end of the Houthi-Saleh alliance opened a window of opportunity for the
Saudi Arabia-led coalition and forces loyal to the Government of Yemen to regain
territory. This window is unlikely to last for long, however, or to be sufficient in and
of itself to end the war.
The launch of short-range ballistic missiles, first by forces of the Houthi -Saleh
alliance and subsequently, following the end of the alliance, by Houthi forces against
Saudi Arabia, changed the tenor of the conflict and has the potentia l to turn a local
conflict into a broader regional one.
The Panel has identified missile remnants, related military equipment and
military unmanned aerial vehicles that are of Iranian origin and were brought into
Yemen after the imposition of the targeted arms embargo. As a result, the Panel finds
that the Islamic Republic of Iran is in non-compliance with paragraph 14 of resolution
2216 (2015) in that it failed to take the necessary measures to prevent the direct or
indirect supply, sale or transfer of Borkan-2H short-range ballistic missiles, field
storage tanks for liquid bipropellant oxidizer for missiles and Ababil -T (Qasef-1)
unmanned aerial vehicles to the then Houthi-Saleh alliance.
The Houthis have also deployed improvised sea mines in the Red Sea, which
represent a hazard for commercial shipping and sea lines of communication that could
remain for as long as 6 to 10 years, threatening imports to Yemen and access for
humanitarian assistance through the Red Sea ports.
Yemen’s financial system is broken. There are competing central banks, one in
the north under the control of the Houthis, and one in the south under the control of
the Government. Neither is operating at full capacity. The Gover nment is unable to
effectively collect revenue, while the Houthis collect taxes, extort businesses and seize
assets in the name of the war effort.

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Yemen has a liquidity problem. Salaries throughout the country often go unpaid,
meaning that medicine, fuel and food, when available, are often prohibitively
expensive. New profiteers are emerging as a result of the war and the black market
now threatens to eclipse formal transactions.
Although Ali Abdullah Saleh is now deceased, it is likely that Khaled Ali
Abdullah Saleh, acting on behalf of Ahmed Ali Abdullah Saleh (YEi.005), will
continue to control the wealth of the Saleh family. There is no indication, as yet, as to
whether he will use this wealth to support acts that threaten the peace, security or
stability of Yemen.
Throughout 2017, there have been widespread violations of international
humanitarian law and international human rights law by all parties to the conflict. The
air strikes carried out by the Saudi Arabia-led coalition and the indiscriminate use of
explosive ordnance by Houthi-Saleh forces throughout much of 2017 continued to
affect civilians and the civilian infrastructure disproportionally. The Panel has seen no
evidence to suggest that appropriate measures were taken by any side to mitigate the
devastating impact of these attacks on the civilian population.
The rule of law is deteriorating rapidly across Yemen, regardless of who controls
a particular territory. The Government of Yemen, the United Arab Emirates and
Houthi-Saleh forces have all engaged in arbitrary arrests and detentions, carried out
enforced disappearances and committed torture. The Houthis have summarily executed
individuals, detained individuals solely for political or economic reasons and
systematically destroyed the homes of their perceived enemies. The Houthis also
routinely obstruct humanitarian access and the distribution of aid.
Following the missile attack on Riyadh on 4 November 2017, the Saudi Arabia-
led coalition ordered the closure of all land crossings into, and all seaports and airports
in Yemen. Entry points under the control of the Government of Yemen were quickly
re-opened, while those under the control of the Houthis, such as H udaydah, remained
closed for weeks. This had the effect of using the threat of starvation as an instrument
of war.
Delays and unpredictability resulting from the current inspection regime for the
Red Sea ports have created additional barriers and busine ss risks for shippers and
importers supplying Yemen. The confidence of the Saudi Arabia -led coalition in the
United Nations inspection process must be improved to ensure an increased flow of
essential supplies and humanitarian aid through the Red Sea ports.

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Contents
Page

I. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
A. Mandate and introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
B. Methodology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
C. Programme of work . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
D. Cooperation with stakeholders and organizations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
II. Threats to the peace, security or stability of Yemen . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
A. Challenges to the authority of the legitimate Government of Yemen . . . . . . . . . . . . . . . . . 9
B. Impediments to the cessation of hostilities and to the resumption of the political process 10
C. Security and regional dynamics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
D. The “Southern question” . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
E. Contested areas and potential fragmentation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
F. Maritime security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
III. Armed groups and military units . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
A. Yemeni Government and Saudi Arabia-led coalition regular forces . . . . . . . . . . . . . . . . . . 17
B. Saudi Arabia-led coalition proxy forces . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
C. Houthi forces . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
D. The network of Ali Abdullah Saleh . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
E. Al-Qaida in the Arabian Peninsula . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
F. Islamic State in Iraq and the Levant . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
IV. Arms and implementation of the targeted arms embargo . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
A. Houthi-Saleh “land missile campaign” . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
B. Extended-range short-range ballistic missiles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
C. Houthi use of unmanned aerial vehicles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
D. Waterborne improvised explosive devices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
E. Sea mines . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
F. Anti-tank guided missiles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
G. Black market . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
H. Increasing the effectiveness of the targeted arms embargo . . . . . . . . . . . . . . . . . . . . . . . . . 36
V. Economic context and overview of finance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
A. Control of State economic resources by the Houthis and their affiliates . . . . . . . . . . . . . . 37
B. Money supply problems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40
C. Financial consequences of the conflict on the import of food . . . . . . . . . . . . . . . . . . . . . . . 41
VI. Assets freeze . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43
Khaled Ali Abdullah Saleh . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45

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VII. Travel ban . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45

VIII. Acts that violate international humanitarian law and human rights law . . . . . . . . . . . . . . . . . . . 45
A. Incidents attributed to the Saudi Arabia-led coalition . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46
B. Houthi and Saleh forces: violations associated with the deprivation of liberty . . . . . . . . . 49
C. Indiscriminate use of explosive ordnance against civilian populated areas . . . . . . . . . . . . 50
D. Violations by the Government of Yemen . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51
E. Attacks inside hospitals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 52
F. Recruitment and use of children in armed conflict . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 52
IX. Obstruction of humanitarian assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53
A. Obstruction of deliveries of humanitarian assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53
B. Obstruction to the distribution of humanitarian assistance . . . . . . . . . . . . . . . . . . . . . . . . . 54
X. Recommendations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54
Annexes* . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56

* The annexes are being circulated in the language of submission only and without formal editing.

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Final report of the Panel of Experts on Yemen

I. Introduction
A. Mandate and introduction

1. By its resolution 2342 (2017), the Security Council renewed the sanctions
measures in relation to Yemen and further extended the mandate of the Panel of
Experts on Yemen until 28 March 2018. The Panel is mandated to:
(a) Assist the Security Council Committee established pursuant to resolution
2140 (2014) in carrying out its mandate as specified both in resolutions 2140 (2014)
and 2216 (2015), including by providing the Committee at any time with information
relevant to the potential designation at a later stage of individ uals and entities who
may be engaging in acts that threaten the peace, security or stability of Yemen, as
defined in paragraph 18 of resolution 2140 (2014) and paragraph 19 of resolution
2216 (2015);
(b) Gather, examine and analyse information from States, relevant United
Nations bodies, regional organizations and other interested parties regarding the
implementation of the sanctions measures and targeted arms embargo, in particular
incidents undermining the political transition;
(c) Provide a midterm update to the Committee no later than 28 July 2017,
and a final report to the Security Council no later than 28 January 2018, after
discussion with the Committee;
(d) Assist the Committee in refining and updating information on the list of
individuals subject to sanctions measures, including through the provision of
identifying information and additional information for the publicly available narrative
summary of reasons for listing;
(e) Cooperate with other relevant expert groups established by the Security
Council, in particular the Analytical Support and Sanctions Monitoring Team
established by Council resolution 1526 (2004). 1
2. On 1 August 2017, the Panel presented a midterm update to the Committee, 2 in
accordance with paragraph 6 of resolution 2342 (2017). An additional update
containing information on the obstruction of commercial shipping through Red Sea
ports in Yemen controlled by the Houthi-Saleh forces 3 was submitted to the
Committee on 31 March 2017, and two updates on an escalation in relation to a
missile attack against Riyadh on 4 November 2017 were submitted to the Committee
on 10 and 24 November 2017.
3. The present report covers the period from 1 January 2017 to 31 December 2017.
The Panel has also continued to investigate outstanding issues covered in its previous
report, dated 31 January 2017 (S/2017/81).

__________________
1
The Monitoring Team established by resolution 1526 (2004) and extended by resolution 2253
(2015).
2
The midterm update and the additional updates pro vided to the Committee and to the members of
the Security Council are confidential (archived in the files of the Secretariat).
3
Houthi-Saleh forces refers to the armed units of the alliance up until its collapse on 1 December
2017.

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B. Methodology

4. In its investigations, the Panel complied with paragraph 11 of resolution 2342

(2017), which pertains to the best practices and methods recommended in the report
of the Informal Working Group of the Security Council on General Issues of Sanctions
(S/2006/997). The Panel placed emphasis on adherence to standards regard ing
transparency and sources, documentary evidence, corroboration of independent
verifiable sources and providing the opportunity to reply. 4 The Panel has maintained
transparency, objectivity, impartiality and independence in its investigations and has
based its findings on a balance of verifiable evidence.
5. The Panel used satellite imagery of locations in Yemen procured by the United
Nations from private providers to support investigations. It also used information
from commercial databases that record maritime and aviation data and mobile phone
records. Public statements by officials through official media channels were accepted
as factual, unless contrary facts were established. While the Panel has been as
transparent as possible, in situations in which identifying sources would expose them
or others to unacceptable safety risks, the Panel decided not to include identifying
information in the report and assigned the relevant evidence for safekeeping in United
Nations archives.
6. The Panel reviewed social media, but no information gathered was used as
evidence unless it could be corroborated using multiple independent or technical
sources, including eyewitnesses, in order to meet the highest achievable standard of
proof.
7. The spelling of place names within Yemen is often dependent on the ethnicity
of the source or quality of translation. The Panel has adopted a consistent approach
in the report, with personal names and major place names spelled out as in previous
United Nations documents and in accordance with the standard spelling found in the
United Nations Terminology Reference System (UNTERM). Dates in documents
provided by Member States given according to the Islamic calendar have been
converted to the corresponding dates according to the Gregoria n calendar.

C. Programme of work

8. In the course of its investigations Panel members have travelled to Belgium,

Djibouti, Egypt, Ethiopia, France, the Islamic Republic of Iran, Israel, Italy, Jordan,
the Netherlands, Oman, Qatar, Saudi Arabia, Spain, Sweden, Turkey, the United Arab
Emirates, the United Kingdom of Great Britain and Northern Ireland, the United
States of America and Yemen. The Panel twice requested official visits to areas of
Yemen (Ma’rib and Mukalla) under the control of the legitimate Government: on both
occasions the response from the legitimate Government and Saudi Arabia was too late
to allow for the United Nations travel approval and security processes to be completed.
9. The Panel requested visits to territory controlled by the Houthi-Saleh alliance
(Sana’a and Ta‘izz) on three separate occasions. The Sana’a-based authorities initially
approved the first visit, but withdrew that approval 24 hours later. They did not
respond the subsequent two requests after informing the Panel that they did not wish
to cooperate with it. 5
10. Oman initially agreed to a visit to the Mazyunah border crossing point with
Yemen but cancelled the visit immediately prior to the Panel ’s departure for Oman.

__________________
4
Information on methodology and opportunity to reply is contained in annex 1.
5
Letter to the Panel dated 23 March 2017.

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D. Cooperation with stakeholders and organizations

1. United Nations system

11. The Panel wishes to highlight the excellent level of cooperation with the Office
of the Special Envoy of the Secretary-General for Yemen and the United Nations
resident coordinators in the neighbouring States visited by the Panel. The United
Nations country team and United Nations agencies with a regional mandate remain
supportive of the Panel’s work. The Panel has consistently had direct access to
country team officials in Sana’a and the wider region to exchange information and
expertise.
12. In conformity with paragraph 7 of resolution 2342 (2017), the Panel has
maintained close cooperation with the Analytical Support and Sanctions Monitoring
Team concerning Islamic State in Iraq and the Levant (ISIL) (D a’esh), Al-Qaida and
the Taliban and associated individuals and entities, 6 the Somalia and Eritrea
Monitoring Group, 7 and the Secretariat staff working on the implementation of
resolution 2231 (2015).

2. Communications with Member States

13. The Panel has sent 192 letters to Member States and entities requesting
information on specific issues relevant to its mandate. The Panel wishes to affirm that
such requests for information do not necessarily imply that those Governments, or
individuals or entities in those States, have been violating the sanctions regime. The
Panel notes, however, that 25 per cent of requests to Member States for information
are still awaiting a response. At the time of submission of the present report, replies
are awaited from: Australia, France, the Islamic Republic of Iran, Marshall Islands,
Oman, the Russian Federation, Saudi Arabia, Serbia, Togo, the United Arab Emirates,
the United Kingdom and Yemen. Furthermore, the ministry of foreign affairs, based
in Sana’a, and several other entities have not yet replied. A summary of the Panel ’s
correspondence during the reporting period is contained in annex 3 to the present
report.

3. Government of Yemen
14. The Panel met the Prime Minister of Yemen, Ahmed Bin Dagher, and other
officials of the legitimate Government of Yemen in Aden in March 2017. 8 Although
they expressed full support to the Panel, they provided information of insufficient
evidential quality.

4. Houthi-Saleh alliance
15. The Panel maintained phone contact with representatives of the Houthi
Ansarallah movement and the leaders of the General People ’s Congress. The Panel
also met with some of their representatives during visits to countries in the region.
__________________
6
Established by resolution 1526 (2004) and extended by resolution 2253 (2015).
7
Established by resolutions 751 (1992) and 1907 (2009), and recently extended by resolution 2317
(2016).
8
In order to avoid confusion between the Government of Yemen and Houthi -Saleh alliance
authorities and appointments, and to easily distinguish between the two in the present report, for
Government of Yemen ministries and Government officials the Panel will use capitalization: for
example, “Minister of Defence” and “Ministry of Defence”. The Houthi duplicate administration
would then be referred to as, the “Sana’a based minister of defence” and the “Sana’a based
ministry of defence”. Similarly, military ranks and appointments will follow the same format, for
example, “General” and “general”, “35th Armoured Brigade” and “62nd mechanized brigade”
and so forth.

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II. Threats to the peace, security or stability of Yemen

16. In paragraph 18 of resolution 2140 (2014), the Security Council determined that
obstructing or undermining the successful completion of the poli tical transition, as
outlined in the Gulf Cooperation Council initiative and the implementation
mechanism agreement, poses a threat to the peace, security or stability of Yemen and
can be used as designation criterion.

A. Challenges to the authority of the legitimate Government of Yemen

17. The authority of the legitimate Government of Yemen has now eroded to the
point that it is doubtful whether it will ever be able to reunite Yemen as a single
country. The Panel bases this assessment on the followi ng four factors: (a) President
Hadi’s inability to govern from abroad; (b) the formation of a “Southern Transitional
Council”, with the stated goal of creating an independent south Yemen; (c) the
continued presence of the Houthis in Sana’a and much of the north; and (d) the
proliferation and independent operations of proxy military forces funded and armed
by members of the Saudi Arabia-led coalition.
18. President Hadi remained outside Yemen for much of 2017. 9 Several Governors
either resigned or were removed 10 from their posts by President Hadi, including Nayif
Salim Saleh al-Qaysi (QDi.402), 11 the then Governor of Bayda’, who was sanctioned
by the United Nations on 22 February 2017 for providing support to an Al -Qaida
branch in Yemen. 12 The legitimate Government’s inability to pay salaries to civil
servants, soldiers and other Government employees has also undermined its authority
and diminished popular support.

1. Southern Transitional Council

19. On 11 May 2017, the former Governor of Aden, Major Gener al Aydrus
al-Zubaydi, announced the formation of the Southern Transitional Council 13 with the
stated goal of creating an independent south Yemen. 14 On 30 November 2017 the
Council announced the names of the 303 members of a “National Assembly”. 15
20. Throughout 2017, support for the Southern Transitional Council and its goal of
an independent south Yemen has grown among the population as well as within the
Yemeni Armed Forces and proxy forces. Uniformed members of the Security Belt
Forces are frequently photographed at Council rallies carrying flags of the former
People’s Democratic Republic of Yemen. The Panel has also identified ele ments of
the Hadrami Elite Forces posting Council logos and the flag of the former southern
State at their checkpoints.
__________________
9
Hadi’s last publicly reported visit to Yemen was in February 2017.
10
For a list of current Governors loyal to the legitimate Government see annex 4.
11
See annex 5 for the network of Nayef al-Qaysi.
12
Al-Qaysi was removed from his post as Governor on 23 July 2017.
13
Information provided in the Panels’ 2017 confidential midterm update report (paras. 9 and 10).
For the leadership of the Southern Transitional Council see annex 7.
14
South Yemen was an independent State from 1967 until unification in 1990.
15
The first meeting was held in Aden on 23 December 2017. Ahmed bin Breik was elected
president and Anis Youssef Ali Luqman as vice-president. The distribution of seats is:
Hadramawt, 100 seats; Aden, 62 seats; Shabwah, 37 seats; Lahij, 36 seats; Abyan, 31 seats;
Mahrah, 24 seats; Dali‘, 10 seats; and Socotra, 3 seats. Websites of the Southern Transitional
Council can be viewed in Arabic (http://www.southerntransitionalcouncil.net/) and English
(http://en.southerntransitionalcouncil.net/) (all hyperlinks, unless otherwise indicated, accessed
on 29 December 2017). The Council has opened local or branch offices in all eight governorates.
For a list of names see annex 7.

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2. Houthi-Saleh alliance
21. Until its collapse in early December 2017 the Houthi-Saleh alliance, through its
joint supreme political council, continued to undertake roles and responsibilities
exclusively within the authority of the legitimate Government. 16 The Houthis have
now taken unilateral control of all State institutions within their territory. The longer
they remain in control, the more entrenched they will become. 17

B. Impediments to the cessation of hostilities and to the resumption of

the political process

22. No real progress towards a peaceful settlement was made during 2017. The
political process has stalled as all parties to the conflict continue to believe that they
can achieve a military victory that would negate the necessity for political
compromise.
23. Since the attack on the convoy of the Special Envoy of the Secretary -General
for Yemen, Ismail Ould Cheikh Ahmed, in Sana’a on 25 May 2017, 18 he has been
prevented from visiting Sana’a. 19 The Houthis have effectively banned the Special
Envoy by refusing to accept any subsequent proposals from him.
24. The Houthis believe that they only have to survive and outlast the Saudi Arabia -
led coalition in order to “win” the war, which limits their willingness to negotiate.
The Saudi Arabia-led coalition, on the other hand, is faced with four broad choices:
(a) unilaterally cease hostilities and leave the Houthis in control; (b) mount a massive
ground invasion with no guarantee of success and certain casualties; (c) continue to
carry out airstrikes and hope for different results, although after 33 months of air
strikes the number of credible targets remaining is considered to be very low; or
(d) attempt to resurrect Saleh’s network as part of an anti-Houthi coalition. Although
the battle lines may shift slightly in the coming months, as a result of the collapse of
the Houthi-Saleh alliance, the Panel does not believe that any side is in a position to
secure an outright military victory.
25. Another complicating factor is that the political decision makers on all sides are
not bearing the brunt of the war, the Yemeni civilians are. The Houthi leadership is
largely insulated from attacks, and from the shortages of food, fuel, medicine and
water. The Saudi Arabia-led coalition relies on relatively low-risk airstrikes and a
limited number of ground troops, which reduces the domestic political fallout.

__________________
16
See S/2017/81, para. 20.
17
Houthis control Amran, Dhamar, Hajjah, Ibb, Mahwit, Raymah, Sa‘dah and Sana’a. Contested
governorates are Bayda’, Hudaydah, Jawf, Ma’rib and Ta‘izz. The list of governors can be found
in annex 8.
18
See https://www.reuters.com/article/us-yemen-security-un/u-n-wants-investigation-into-attack-
on-yemen-envoys-convoy-idUSKBN18L18I.
19
See https://www.reuters.com/article/us-yemen-security-un/houthis-ban-u-n-special-envoy-from-
yemen-for-alleged-bias-idUSKBN18W2D0.

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Collapse of the Houthi-Saleh alliance and death of Saleh

26. Tensions between the Houthis and Ali Abdullah Saleh (YEi.003) spiked in
August 2017, 20 and again on 29 November 2017 when armed Houthi supporters
clashed with Saleh supporters in and around the al-Saleh mosque in Sana’a. The latter
incident sparked a five-day street war that led to the collapse of the Houthi-Saleh
alliance and the death of Ali Abdullah Saleh.
27. Although Ali Abdullah Saleh initially appeared to have the upper hand in
Sana’a, the Houthis quickly retook several military installations a nd sent
reinforcements into the city, while isolating Saleh from military and tribal allies.
Abdullah Yahya al-Hakim (YEi.002) and Mohammed Ali al-Houthi, the head of the
Houthi’s revolutionary committee, were instrumental in reaching out to tribes around
Sana’a and convincing them not to support Ali Abdullah Saleh. The Panel believes
that Mohammed Ali al-Houthi meets the designation criteria owing to his involvement
in leading these events, which constitute a threat to the peace and security of Yemen.
28. On 2 December 2017 Ali Abdullah Saleh reached out to the Saudi Arabia -led
coalition, promising a “new page” in relations and calling on his supporters to take
up arms and fight. 21 But without the help of tribal sheikhs and key generals, who were
either unwilling or unable to help, Saleh 22 and his soldiers in Sana’a were overrun and
killed early on the morning of 4 December 2017.

__________________
20
In August 2017, Abdulmalik al-Houthi and Ali Abdullah Saleh criticized one another in
competing speeches ahead of the public celebration of the thirty-fifth anniversary of the General
People’s Congress. On 26 August 2017, a prominent Saleh supporter, Khaled Ahmed Zayd
al-Radhi, the head of foreign relations for the General People’s Congress and head of the Vulcan
Group, was killed in a clash with the Houthis in Sana’a. On 12 September 2017 Abdulmalik
al-Houthi and Ali Abdullah Saleh spoke directly in an attempt to ease the tensions. For an
account of events escalating tensions within the alliance see annex 9.
21
The Panel notes that during this time the Saudi Arabia-led coalition deployed air strikes against
exclusively Houthi targets close to Saleh’s armed supporters. Should this have been an attempt to
protect Ali Abdullah Saleh then it would be a non-compliance with para. 14 of resolution 2216
(2015) as it would equate to military support to a listed individual. The Panel continues to
investigate this matter.
22
Based on the imagery of Saleh’s body, the Panel believes he was executed at close range with a
bullet to the left side of the back of the head. The Houthis transported Saleh’s body in an SUV
outside of Sana’a, where they staged a mock ambush to make it appear as though he was killed
while fleeing for his life. The Panel believes this is one of the many moves that the Houthis took
in December 2017 as part of a strategy to discredit Ali Abdullah Saleh.

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Figure I
Mohammed Ali al-Houthi and Abdullah Yahya Al Hakim in Sana’a
(December 2017)a

a
Video from confidential sources: Mohammed Ali al-Houthi (left) and Abdullah Yahya
Al Hakim (right).

29. There were also widespread reports that Ali Abdullah Saleh’s nephew and senior
military commander Tariq Muhammad Abdullah Saleh 23 was killed in the fighting.
The Panel is working to independently confirm this. The Panel has confirmed that
Arif al-Zuka, the Secretary-General of the General People’s Congress and the top
political aide of Ali Abdullah Saleh, was also killed. The Houthis also managed to
capture several of Ali Abdullah Saleh’s relatives. 24 The Panel believes that some of
those individuals were wounded in the fighting, and that the Houthis are holding them
as leverage in the event that either Ahmed Ali Abdullah Saleh (YEi.005) or Khaled
Ali Abdullah Saleh attempt to resurrect the Saleh network.
30. Over the course of the next several days, the Houthis attempted to crush or
co-opt the remnants of Saleh’s network while simultaneously consolidating their own
rule over Sana’a and much of northern Yemen. They executed key military
commanders, who were part of Saleh’s Sanhan tribe; 25 arrested prominent members

__________________
23
Tareq Saleh was the commander of Saleh’s Special Guards and de facto head of the Republican
Guard.
24
The Panel has determined that that two of Saleh’s six sons, Salah and Midyan, were captured
along with Saleh’s nephew, Muhammad Muhammad Abdullah Saleh, a key military figure and
General Supervisor of the Vulcan Group (see http://www.vulcanyemen.com/owners.htm). The
Panel also believes that the Houthis captured Tariq Saleh’s eldest son, Afash, and Yahya
Muhammad Abdullah Saleh’s eldest son, Kenan. Lists of Saleh’s sons and nephews are contained
in confidential annexes 10 and 11. For the names of Saleh’s daughters and sons-in-law, see
confidential annex 12.
25
On 5 December 2017 the Houthis executed major gener als Mahdi Maqawlah, Abdullah
al-Dhabaan (commander, 35th armoured brigade and former axis commander in Ta‘izz) and
Murad al-Awbali (commander 62nd mechanized brigade).

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of the General People’s Congress, 26 and intimidated others; 27 forcibly dispersed

protests; 28 kidnapped the children of prominent families tied to Saleh; 29 destroyed the
homes of Saleh supporters; and instigated a media blackout by blocking social media
sites and much of the Internet. The Houthis also announced that they were changing
the name of the al-Saleh mosque, and claimed that they found large quantities of gold,
silver and cash in Saleh’s house, which they were depositing in the Central Bank. 30
The Panel anticipates more crackdowns as the Houthis attempt to solidify their grip
on power.

C. Security and regional dynamics

1. Regional dynamics
31. Qatar was expelled from the Saudi Arabia-led coalition on 5 June 2017, and the
withdrawal of its forces began on 7 June 2017. This has had little impact from a
military perspective. However, tensions between Qatar and members of the Saudi
Arabia-led coalition have spilled over into Yemen, as coalition members and their
proxies have targeted the al-Islah party, which they see as an ally of Qatar. 31

2. Areas under the control of forces allied to the legitimate Government of Yemen
32. Although the armed forces of the legitimate Government remain present
throughout the eight southern provinces, (Abyan, Aden, Dali ‘, Hadramawt, Lahij,
Mahrah, Shabwah and Socotra), a number of other actors such as Al -Qaida in the
Arabian Peninsula (AQAP), ISIL, tribal opponents, the recently formed Southern
Transitional Council and proxy forces of the Saudi Arabia -led coalition challenge the
Government’s ability to govern and impose its authority. Armed forces loyal to
President Hadi are also operating in Ta‘izz and Ma’rib.
33. Forces of the United Arab Emirates in southern Yemen view the Security Belt
Forces (for the leadership and structure of the Security Belt Forces, see annex 6) as
key pillars of their security strategy for Yemen. This approach conti nues to
marginalize Government institutions such as the National Security Bureau and the
Political Security Organization, further undermining and reducing the legitimate
Government’s intelligence and security capabilities.

__________________
26
List of members of the General People’s Congress detained by the Houthis is contained in
annex 13.
27
In the aftermath of Saleh’s death, the Houthi television channel, al-Masirah, broadcast footage of
a meeting of the General People’s Congress in Amran, at which individuals pledged their
allegiance to the state and distanced themselves from Ali Abdullah Saleh. T he Panel believes that
this is the Houthi way of illustrating they will only go after Saleh’s supporters, not the General
People’s Congress as a whole (http://www.almasirah.net/gallery/preview.php?file_id=
10509#.WihdwAa5gRg.twitter).
28
On 6 December 2017 the Houthis fired shots to disperse a protest by women demanding that the
Houthis surrender the body of Ali Abdullah Saleh for burial.
29
Armed men affiliated with the Houthis entered the house of Ruqayah al -Hijjri, the sister of one
of Saleh’s wives (see confidential annex 14), and seized at least one of her children
(http://www.almasdaronline.com/article/95978).
30
The Houthi imagery used to support this claim are stock images that originate outside Yemen
(see http://www.saba.ye/ar/news481198.htm).
31
On 11 October 2017, security forces in Aden, acting on the orders of Shallal Ali Shaye, the Head
of Security, stormed an al-Islah party building, arresting 10 individuals (see https://www.reuters.com/
article/us-yemen-security/yemen-islamist-party-members-arrested-ratcheting-up-tensions-
idUSKBN1CG1J1).

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3. Involvement of the Saudi Arabia-led coalition forces

34. Saudi Arabia-led coalition forces continue to provide financial, political,
military and logistic support to the Yemeni Armed Forces and a number of proxy
armed groups. The main battlefronts for the forces of Saudi Arabia are Ma’rib and
Midi, while those of the United Arab Emirates operate largely in Aden, Abyan,
Hadramawt, Lahij, Mahrah, Mukha and Shabwah.
35. On 7 December 2017, southern resistance forces, with support from the Saudi
Arabia-led coalition under Brigadier General Abdul Salam al-Shehi, took control of
the Abu Musa al-Ashar camp outside Khawkhah and continued to push northward
towards Hudaydah city. 32 As part of this security operation, southern elements under
the command of Haitham Qassem Taher launched a military offensive in the
Hudaydah governorate, meeting minimal resistance from Houthi elements north of
Mukha city on the coast of the Red Sea.
36. The United Arab Emirates continues to expand its support to proxy forces in the
south, primarily the Security Belt Forces in Abyan, Aden and Lahij, and to the
Hadrami and Shabwani Elite Forces (see paras. 55 to 58 below). The United Arab
Emirates maintains military training facilities in Shamussah and Rayyan near
Mukalla, where a number of foreign military advisers and trainers are based in support
of the Elite Forces. 33

D. The “Southern question”

37. The Panel assesses that, given the length of the war, lack of military progress
and the divisions that have emerged, secession into a separate south Yemen is now a
real possibility. Furthermore, the ability of the legitimate Government to administer
and govern the eight governorates it claims to control has been significantly eroded
during 2017. The situation in Aden and Mahrah provide solid examples of the
background to this risk.

1. Aden
38. Security within the governorate has deteriorated significantly over the course of
2017. ISIL has carried out several large-scale suicide attacks and has claimed
responsibility for a number of assassinations (see para. 74 b elow). There have also
been several politically motivated assassinations that have not been claimed by either
AQAP or ISIL. For example, on 18 October 2017, Fahd al -Yunisi, the imam of the
Sahaba mosque in Aden, was assassinated by an, as yet, unidentified gunman. 34
39. The legitimate Government has also repeatedly failed to pay the salaries of
Government workers and appears incapable of providing basic services to the city,
including adequate electricity. On 16 November 2017, Abd al -Aziz al-Muflahi, the
Governor of Aden, submitted his resignation, citing the Government ’s inability to pay
salaries. 35 The Panel has seen billboards throughout Aden and other cities in the south
of the country demonizing Prime Minister bin Daghir and the legitimate Government
for their inability to provide for Yemenis. 36 There appear to be no efforts by local
authorities to counter this campaign against the Government.
__________________
32
See http://adengad.net/news/291513/.
33
Evidence from Panel visits to Yemen and interviews with confidential sources.
34
See http://adengad.net/news/283179/. The Panel has identified other, politically motivated,
assassinations claimed by neither AQAP or ISIL in Yemen.
35
Appointed in April 2017, after President Hadi removed Aydarus al-Zubaydi; Al-Muflahi had also
clashed with Prime Minister bin Daghir, claiming that the latter often acted as the Governor.
36
See https://twitter.com/goldensla/status/926022844307378178.

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2. Mahrah
40. There are growing tensions in the eastern governorate of Mahrah over the
deployment of new military forces into the region to combat smuggling. 37 On
15 November 2017, Brigadier General Abdullah Mansour Ali and the 123rd Infantry
Brigade replaced the 137th Mechanized Brigade in Mahrah. Nearly two weeks later,
on 27 November 2017, President Hadi appointed Rajih Said Bakrit as the new
Governor of Mahrah, replacing Mohammed Abdullah Kudah. 38 The former Governor
remains in Mahrah, protected by armed elements of his tribe and other officials with
shared interests. 39 His tribe, the Al Kudah, controls access to coastal territory east of
Ghaydah port, in Jarub and Zaghar, towards the border with Oman.

E. Contested areas and potential fragmentation

41. The events in Bayda’ and Ta‘izz also provide further indication of the very real
risks of the fragmentation of Yemen.

1. Bayda’
42. Located at the crossroads of the former north-south border, Bayda’ occupies a
highly valuable and strategic location. Of particular importance is the area of Bayhan,
in northern Bayda’, which is a primary smuggling route into Sana’a from the south,
with links to Ma’rib and the Arabian Sea coast. The Houthi presence is centred on the
city of Rada‘, while AQAP appears to be active near Dhahab and the surrounding
areas in Suma and south throughout Zahir. ISIL operates from a small enclave within
Qayfah, while resistance elements supported by the Saudi Arabia -led coalition are
confined to the lower southwest in Humaiqan, Bayda’ city and near Mukayras (see
map in annex 17). 40

2. Ta‘izz
43. As described in paragraphs 28 to 33 of the Panel’s confidential midterm update
report, the city of Ta‘izz remains a flashpoint in the conflict and a humanitarian
disaster. Ta‘izz has been the focus of the most sustained fighting over the past year.
Houthi forces continue to besiege the city. Tension between local resistance elements,
Salafi militias and Yemeni Army Forces spiked in October 2017, following the
decision by the United States, Saudi Arabia and the Gulf Cooperation Council to
sanction Abu al-Abbas, 41 a key Salafi leader. Like the Houthis in Sana’a, Abu
al-Abbas continues to hold territory inside the city and exercises rights and
responsibilities exclusive to the legitimate Government. 42 Prior to 25 October 2017,
Abu al-Abbas had received significant support from the United Arab Emirates. The
Panel is investigating whether this support continues.

__________________
37
Attempts to create a Mahrahi Elite Force, similar to the Hadramawt and Shabwah Elite Forces,
appear to have been tabled for the moment.
38
See http://adengad.net/news/289730/: Kudah was named a Minister of State and a member of
President Hadi’s Council of Ministers.
39
Principal Mahrah Governorate officials are listed in annex 15. Known AQAP affiliates operating
in the governorate are listed in annex 16.
40
These resistance elements are associated with the former Governor of Bayda ’, Nayif al-Qaysi
(QDi.402), and Abd al-Wahhab al-Humayqani (see annexes 5 and 18).
41
Abu al-Abbas was sanctioned by the United States and by the Saudi Arabia -led coalition on
25 October 2017. Known associates are listed in annex 19.
42
Prior to being sanctioned, Vice-President Ali Muhsin al-Ahmar had attempted to incorporate Abu
al-Abbas and his militia into the Yemeni Armed Forces. That attempt failed.

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44. The various Salafi militias 43 that have emerged from the nearly three years of
war are not only competing, and at times clashing, with Government forces, but also
with each other. This competition has only increased in the wake of the sanctions
against Abu al-Abbas. The militias view Ta‘izz as a zero-sum game and a weakened
Abu al-Abbas has meant that several smaller militias are fighting for more territory.
In Ta‘izz, the more urban territory a group holds, the more outside support they
attract.
45. Sanctions on Abu al-Abbas may also have prompted Houthi-Saleh forces to step
up their attacks on resistance forces inside the city of Ta ‘izz and in the surrounding
areas. A number of airstrikes by the Saudi Arabia-led coalition on Ta‘izz, believed to
have been targeting Houthi-Saleh forces, have resulted in civilian casualties. One
airstrike hit elements from the 22nd Armoured Brigade, loyal to President Hadi, in
the al-Aroos area of Saber mountain. 44 Such incidents have disrupted relations
between local forces and allies of the Saudi Arabia-led coalition, giving Houthi-Saleh
forces the opportunity to mobilize their forces and exploit the situation to gain new
ground along various fronts in Ta‘izz.
46. Both AQAP and ISIL remain active in Ta‘izz, although both groups have
experienced defections and fragmentation (see para. 66 below).

F. Maritime security

47. During 2017 there was an increase in the number and type of maritime security
incidents affecting the safety and security of the strategic sea lines of communication
and approaches to the Red Sea ports. This jeopardizes the delivery of humanitarian
assistance to Yemen by sea, in violation of paragraph 19 of resolution 2216 (2015).
Figure II illustrates the number and the distribution of maritime security incidents
within the region during 2017, including:
(a) Attacks using missiles or explosives against Saudi Arabia -led coalition
naval vessels and the Red Sea ports, including the emergence of new threats from:
(i) remote controlled skiffs containing explosives (water-borne improvised explosive
devices); and (ii) the use of a land-based anti-tank guided missiles;
(b) An attempted attack against the Marshall Islands-flagged tanker
MV Muskie very similar in modus operandi to that against the Spanish-flagged
MV Galicia Spirit; 45
(c) An armed helicopter attack on 16 March 2017 by an as yet unidentified
perpetrator against a civilian vessel containing migrants that resulted in at least
42 fatalities;
(d) The use of naval and improvised sea mines (see paras. 110–114 below).

__________________
43
Other militias in Ta‘izz, include: the al-Sa’lik Brigade and those under the control of Hashem
al-Sanani, Saud Mayub, Hareth al-Izzy and Abu Saduq.
44
See http://www.middleeasteye.net/news/saudi-forces-accused-deliberately-targeting-allies-
yemens-Ta’izz-179331116.
45
MV Galicia Spirit attack reported in S/2017/81, paras. 37 and 38 and annex 14. MV Muskie
attack reported in the Panels’ 2017 confidential midterm update.

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Figure II
Maritime security incidents: 2017

48. While the tactics contained in the industry publication Best Management
Practices for Protection against Somalia Based Piracy (BMP 4) 46 will protect vessels,
to some degree, against attempted boarding by small groups of armed militants or
pirates, they will not provide protection against attacks involving waterborne
improvised explosive devices, anti-ship missiles, 47 land based anti-tank guided
missiles or sea mines.

III. Armed groups and military units

49. Pursuant to paragraph 17 of resolution 2140 (2014), and as reiterated by the
Security Council in its resolutions 2216 (2015), 2266 (2016) and 2342 (2017), the
Panel continues to investigate individuals and entities associated with armed groups
who may be engaging in or providing support for acts that threaten the peace, security
or stability of Yemen.

A. Yemeni Government and Saudi Arabia-led coalition regular forces

50. Troops under the ostensible control of President Hadi routinely display the flag
of an independent south Yemen. At times, they have referred to the former Governor
of Aden and current Head of the Southern Transitional Council, Aydarus al -Zubaydi,

__________________
46
See www.mschoa.org/docs/public-documents/bmp4-low-res_sept_5_2011.pdf?sfvrsn=0.
Although addressing Somalia-based piracy, the practices also apply to transit in the Red Sea, and
to protection against Yemeni-based pirates. The title is a legacy from the initial publication Best
Management Practices for Protection against Somalia Based Piracy (BMP 1).
47
See S/2017/81, paras. 35 and 36, and annex 13.

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as their “president”. 48 It is the assessment of the Panel that President Hadi no longer
has effective command and control over the military and security forces operating on
behalf of the legitimate Government of Yemen. 49 One way President Hadi has
attempted to arrest the erosion of his power is through the deployment of new military
units, particularly the Ta‘izz-based 5th Presidential Protection Brigade, which is
reminiscent of the Republican Guard Brigades that former President Ali Abdullah
Saleh used to safeguard his rule. 50
51. Regular military units, such as the 103rd Infantry Brigade in Abyan, 51 which are
wholly or mostly dependent on the legitimate Yemeni Government for salaries and
equipment, are underequipped, often paid late or paid only in part. The problem, for
this particular Brigade, is further compounded by the fact that their camp in Abyan is
on the frontlines and a frequent target of AQAP attacks. 52 In September, frustrated
soldiers of the 103rd Infantry Brigade blocked a major road in Abyan to protest th e
fact that they had received only a partial salary.
52. The situation is slightly different in Ma’rib, where Vice-President Ali Muhsin
al-Ahmar 53 has spent significant periods of time visiting the battlefronts in Sirwah
and Nihm. The troops in that area are better paid and better equipped, which is a direct
result of Vice President al-Ahmar’s support and patronage.
53. The most effective Yemeni security units, however, are the proxy forces formed
and supported by member States of the Saudi-Arabia led coalition, which, in turn, act
as proxies for those member States in Yemen.

B. Saudi Arabia-led coalition proxy forces

54. The Panel believes that proxy forces funded and armed by member States of the
Saudi Arabia-led coalition present a threat to the peace, security or stability of Yemen.
Unless they are brought back under direct Yemeni command and control, with all
salaries and equipment distributed through Yemeni Government channels, these
forces will do more to further the fracturing of Yemen than th ey will to hold the State
together.

1. Security Belt Forces

55. The Security Belt Forces, which were formed in March 2016, 54 technically fall
under the Ministry of the Interior. However, in practice, they are trained, supplied and
paid for by the United Arab Emirates and operate outside the Yemeni military
__________________
48
On 25 October 2017, the official twitter account of the Hadrami Elite Forces referred to Aydarus
al-Zubaydi as al-rais, or “president.” (see https://twitter.com/NokhbaHadramout/status/
923209607174152192).
49
For a list of Yemen’s military districts and their commanders, see annex 20.
50
Formed on 17 November 2017. Commanded by Brigadier General Adnan Ruzaiq, a Salafi fighter
from the Al Qamush tribe in Shabwah, who arrived in Ta ‘izz in 2015 with 160 fighters. Ruzaiq
has previously come into conflict with Security Belt Forces, who attacked his house in Aden in
January 2017, in what is another example of the fragmentation of the armed forces of the
legitimate Government. For a list of Presidential Protection Brigades see annex 21.
51
The Brigade was moved from its base in Aden to Abyan in late July 2017.
52
On 8 August 2017, an AQAP suicide bomber, Arif Adil Hassan Habib, attacked their camp,
killing 12 soldiers and wounding 28.
53
Ali Muhsin al-Ahmar, a relative of former president Ali Abdullah Saleh, who broke with him in
2011, is one of the most powerful military commanders in recent Yemeni history, and still has a
strong network of support within Yemen’s military.
54
As early as September 2015 then Governor of Aden, Nayif Bakri, was talking about forces of
Saudi Arabia and the United Arab Emirates forming a “security belt” in the south (see
https://sputniknews.com/middleeast/201509051026642155/ ).

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command-and-control structure. Initially numbering around 10,000 soldiers, the

Security Belt Forces have grown to more than 15,000 troops and are active in the
governorates of Aden, Abyan and Lahij. 55
56. At times, Security Belt Forces have clashed with Yemeni military units loyal to
President Hadi, 56 and have also been implicated in a number of violations of
international humanitarian law and international human rights law (see para. 166
below). 57 Security Belt Forces have also been among the most active in combatting
AQAP and ISIL in Yemen, particularly since August 2017 (see para. 38 above).

2. “Elite Forces”
57. In early 2016, the United Arab Emirates formed and funded the Hadrami Elite
Forces ahead of a planned assault on Mukalla. 58 Like the Security Belt Forces, the
Hadrami Elite Forces are better paid than their regular Yemeni army counterparts and
operate outside the Yemeni military command-and-control structure.
58. In late 2016, the United Arab Emirates also formed and funded the Shabwani
Elite Forces, using the same model. Like the Hadrami Elite Forces, the Shabwani
units are made up of local fighters who operate outside the Yemeni military command -
and-control structure. 59 The Panel estimates the Shabwani Elite Forces currently
number between 3,000 to 4,000 fighters. 60 Although these forces have been active in
the fight against AQAP and ISIL in Yemen, the Panel finds them to be proxy forces
that are undermining the authority of the legitimate G overnment of Yemen.

C. Houthi forces

59. Militarily, the Houthis are a tribal-based militia 61 grafted on to, and allied with,
a professionally trained military from elements of the former Yemeni Armed Forces. 62
When the Houthis took control of Sana’a in late 2014 they needed the political and
military experience provided by the network of Ali Abdullah Saleh (see paras. 43–45
below). By late 2017 this had ceased to be the case. Over the past year, the Houthis
have gradually eased out Saleh loyalists from key positions and replaced them with
their own supporters. This process culminated in a five -day street war in Sana’a in
late November and early December 2017 that ended with the death of Ali Abdullah
Saleh (see para. 29 above).

__________________
55
For an overview of the command structure see annex 6.
56
The Panel has identified several clashes between the two sides, for example on 16 September
2017, Hadi’s Presidential Protection Force refused to hand over a military checkpoint at Arish on
the Aden-Abyan road to the United Arab Emirates-backed security forces (see
https://www.reuters.com/article/us-yemen-security-clash/gunfight-erupts-in-southern-yemen-one-
civilian-killed-witnesses-idUSKCN1BR0M4).
57
Elements affiliated with Security Belt Forces have also been implicated in a number of
extrajudicial detentions of civilians in Aden (see annex 22).
58
The initial impetus for the creation of the Hadrami Elite Forces was to create a local face for the
efforts to retake the city of Mukalla from AQAP in April 2016 (see S/2017/81, para. 51).
59
The Panel has identified clashes in October 2017 between the Shabwani Elite Forces and the
23rd Mechanized Brigade, loyal to Vice-President Ali Muhsin al-Ahmar.
60
The Shabwani Elite Forces command structure is set out in annex 23.
61
Key security and military figures for the Houthis are listed in annex 24. Key Houthi political
figures are listed in annex 25.
62
The Houthi militia has been fighting for much of the past 13 years, first in a series of six
successive wars against then President Saleh’s Government from 2004 to 2010, and since March
2015 against the Saudi Arabian-led coalition. After the Houthis took control of Sana’a in early
2015, Yemen’s military fragmented, with several key officers joining the Houthis, others
remaining loyal to former President Saleh and others siding with President Hadi.

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60. Although there will likely be defections from soldiers still loyal to Ali Abdullah
Saleh’s network, the Panel does not believe these defections will take place in
significant enough numbers, or be carried out in an organized enough fas hion, to
threaten the Houthis’ hold on Sana’a and much of the north, at least in the near term.
In the immediate aftermath of the death of Ali Abdullah Saleh the Houthis moved
quickly to crush or co-opt what remained of his network, while consolidating their
rule through a series of brutal crackdowns, arrests and executions (see para. 29
above).
61. On 4 November 2017, the Houthis launched a short-range ballistic missile attack
on Riyadh (see para. 82 below). Saudi Arabia responded two days later by, among
other things, issuing a “wanted” list of 40 Houthis, with significant rewards for
information leading to their capture or death. 63
62. With the collapse of the Houthi-Saleh alliance the Houthis may look for
international partners to offset the loss of domestic allies. Indeed, the Panel considers
that further “internationalization” of the war is likely. The more isolated the Houthis
become, the more they will look to make common cause with countries seeking to
combat the member States of the Saudi Arabia-led coalition. The Panel is aware of
media reports that the Islamic Republic of Iran has provided “advisers” to the Houthis
and it is investigating this matter. 64
63. Although the Houthis continue to recruit new fighters, including children (see
paras. 185 and 186 below), the movement is at heart a family organization. 65 This
means that the most trusted commanders are those related to the leader, Abdulmalik
al-Houthi (YEi.004). 66 This explains why, in April 2017, when it looked as though the
Saudi Arabian-led coalition was planning an offensive against Hudaydah, the Houthis
named Yusif Ahsan Isma‘il al-Madani 67 as the commander of the 5th military district
in Hudaydah. 68 The Houthis made a similar move later in 2017, transferring Abd
al-Khaliq al-Houthi (YEi.001) from the Midi front to the Nihm front near Sana’a, to
better protect the capital.

D. The network of Ali Abdullah Saleh

64. The Panel does not believe that Ahmed Ali Abdullah Saleh, Khaled Ali Abdullah
Saleh, or any other single individual is capable of reconstituting Ali Abdullah Saleh’s
network. Soldiers from the republican guards and special guards are now faced with
a choice of either allying themselves with the legitimate Government forces and the
Saudi Arabia-led coalition, whom they have been fighting for most of the past three
years, or joining the Houthis, who executed Ali Abdullah Saleh and senior military

__________________
63
The Government of the former president Ali Abdullah Saleh issued a similar list of 55 “wanted”
Houthis in 2009. The list issued by Saudi Arabia is in annex 26.
64
In a response to a letter from the Panel dated 28 November 2017, the Islamic Republic of Iran
replied, on 6 December 2017, that “Iran has no military presence in Yemen, but has a diplomatic
representation in Sana’a, providing ’advisory assistance’ to support efforts at finding a political
solution to the current crisis”.
65
The first leader was Husayn Badr al-Din al-Houthi. When he was killed in 2004, the leadership
transferred to his father, Badr al-Din al-Houthi, and then to his half-brother and the current
leader, Abdulmalik al-Houthi. The Houthi family tree is provided in annex 27.
66
This is also true at the political level, for example, Saleh al-Samad, head of the supreme political
council, is close to Abdulmalik al-Houthi, and studied under both Husayn Badr al-Din al-Huthi
and his father, Badr al-Din al-Houthi.
67
Al-Madani is related to the Houthi family by marriage. He was one of Husayn Badr al-Din
al-Houthi’s most trusted commanders in the initial Houthi war of 2004 and later married one of
Husayn’s daughters.
68
A list of Houthi military district commanders is provided in annex 28.

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commanders in December 2017. Any attempt at full-scale resistance to the Houthis is

complicated by the fashion in which small groupings of republican guard soldiers
have been distributed to various battlefronts. This distribution of forces meant that
Saleh was unable to count on large numbers of loyal soldiers at short notice when he
needed them on 3 December 2017.
65. Given the extrajudicial executions and mass detentions carried out by the
Houthis after the death of Ali Abdullah Saleh (see para. 29 above) it is likely that
there will be a cycle of revenge killings, which may last for years. For example, in
2004, Saleh’s soldiers killed Husayn Badr al-Din al-Houthi, the first leader of the
Houthi movement. Thirteen years later, when Houthi forces killed Ali Abdullah Saleh,
their fighters claimed that this avenged Husayn’s death. 69 In a televised appearance
after Saleh’s death, Abdulmalik al-Houthi was wearing Husayn’s dagger, a clear sign
that he considered his brother’s death avenged. Saleh’s family and supporters will
likely attempt to seek their own revenge against the Houthis. The key difference,
however, is that Husayn Badr al-Din al-Houthi led a movement, while Ali Abdullah
Saleh headed a network.

E. Al-Qaida in the Arabian Peninsula

66. Throughout 2017 AQAP averaged slightly more than one attack every two
days. 70 These attacks fell into five broad categories: (a) suicide attacks; 71 (b) mortar
attacks; (c) assassinations; 72 (d) improvised explosive device attacks; and (e) small -
scale assaults. The attacks have taken place mostly in the following three
governorates: Bayda’, Abyan, and Hadramawt. 73
67. AQAP is fighting a multi-front war in Yemen against three enemies: (a) the
Houthis; (b) the United States and the West; and (c) the Government of Yemen and
Saudi Arabian-led coalition forces, 74 with the ultimate goal of acquiring and
governing territory. 75 Internationally, the group continues to have two goals:

__________________
69
These chants can be heard on the video of Houthi fighters placing Saleh’s body in the back of a
pick-up truck.
70
There have been more than 200 attacks claimed during 2017 by AQAP. This is roughly simila r to
the number of attacks claimed by AQAP in 2016.
71
A list of suicide (person-borne improvised explosive device/suicide vehicle improvised suicide
device) attacks by AQAP is provided in annex 29.
72
The majority of assassination attempts by AQAP used improvised explosive devices. The Panel
differentiates between general improvised explosive device attacks and assassinations; for
example, on 3 October 2017 AQAP placed an improvised explosive device under the vehicle of
Arif Said Abdullah al-Muhammadi, a criminal investigator, in Mukalla. Al-Muhammadi survived
the attack.
73
There has also been AQAP activity and attacks in Shabwah, Ma’rib, Lahij and Aden, but the vast
majority of attacks have taken place in the three governorates listed. More than hal f of all attacks
claimed by AQAP in 2017 took place in Bayda’.
74
The clearest articulation of this approach came in March 2017, during an interview with the
AQAP leader Qasim al-Rimi (QDi.282), which was released on 29 April 2017 (see
https://azelin.files.wordpress.com/2017/05/al-qacc84_idah-in-the-arabian-peninsula-22interview-
with-qacc84sim-al-raymicc8422-en.pdf).
75
AQAP has held and governed territory in Yemen, from 2011 to 2012 and again in 2015 and 2016;
both times it alienated the local population and chose to withdraw instead of remaining behind to
fight.

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launching attacks against Western targets from its base in Yemen; and inspiring or
inciting individuals living in the West to carry out terrorist attacks. 76
68. Although the Panel assesses that AQAP is still quite capable of launching and
inspiring attacks against international targets, 77 it also believes that AQAP is currently
more vulnerable than it has been in years. The Panel bases its assessment on the
following four factors: (a) a dramatic increase in air and drone strikes by the U nited
States; (b) a sustained ground campaign by Yemeni and international forces; (c) the
arrests of several mid and low-level AQAP figures; and (d) internal dissension among
members of the organization. 78
69. In 2017, the United States increased the number of air and drone strikes in
Yemen, which rose from 30 in 2016 to well over 120 in 2017. 79 The United States has
also declared three governorates in Yemen to be “areas of active hostilities”, a
designation which authorizes target approval to be taken at a lower level. 80
70. In August 2017, Yemeni troops backed by the United Arab Emirates, with
advisers provided by the United Arab Emirates and the United States, launched a
ground offensive against AQAP targets in Shabwah, Hadramawt and parts of Abyan. 81
This offensive expanded and continued through late 2017, resulting in the death or
capture of several low and mid-level AQAP members. 82 Despite this, the core
leadership of AQAP in Yemen remains intact. 83
71. On 17 August 2017, AQAP released a statement warning the tribes of Abyan not
to join the forces of the United Arab Emirates and its proxies, such as the Security
Belt Forces. Five days later, on 22 August 2017, it released a similar statement in
Shabwah, 84 again warning local tribes against joining the Shabwani Elite Forces. Both
of these statements illustrate exactly how vulnerable AQAP is to tribal politics. AQAP
recruits within the tribes, but more importantly it relies on tribal non -aggression to
__________________
76
On 7 May 2017, al-Rimi released a video message, entitled “A Lone Mujahid or an Army by
Itself”, encouraging individuals in the west to carry out attacks (see http://jihadology.net/2017/05
/07/new-video-message-from-al-qaidah-in-the-arabian-peninsulas-shaykh-qasim-al-raymi-an-
inspire-address-1-a-lone-mujahid-or-an-army-by-itself/). On 13 August 2017, AQAP released
issue No.17 of its English-language magazine Inspire, with the title “Train Derail Operations;”
the first issue of the magazine since November 2016.
77
The Panel continues to investigate how AQAP is using the money it acquired when it had control
of Mukalla in 2015 and early 2016.
78
The Panel considers that many of these actions, particularly air and drone strikes, can have a
detrimental impact in the long term, essentially killing one terrorist today but creating two more
tomorrow, particularly if civilians are killed as collateral damage.
79
The United States carried out “multiple ground operations and more than 120 strikes” in 2017,
primarily against AQAP (see http://www.centcom.mil/MEDIA/PRESS-RELEASES/Press-Release-
View/Article/1401383/update-on-recent-counterterrorism-strikes-in-yemen/).
80
See https://www.nytimes.com/2017/03/12/us/politics/trump -loosen-counterterrorism-rules.html.
Within “areas of active hostilities” United States forces are granted latitude to conduct strikes
without explicit approval from the White House, which may explain, at least in part, the increase
in the number of strikes.
81
On 29 January 2017, the United States carried out a raid on a suspected AQAP target in Bayda’,
which resulted in the death of one American soldier. A second American soldier, Staff Sergeant
Emil Rivera-Lopez, was killed in a helicopter crash “off the coast of Yemen” on 25 August 2017.
The United States denied that Rivera-Lopez, who was part of a special operations support unit,
was on a combat mission (see http://www.centcom.mil/MEDIA/PRESS-RELEASES/Press-
Release-View/Article/1298631/dod-declares-dustwun-soldier-deceased/).
82
The majority of those captured or killed have been mid and low -level AQAP figures, for
example, on 31 October 2017, Security Belt Forces in Abyan made a surprise raid on an AQAP
camp, capturing several individuals, including Muhammad al-‘Awadh, a former bodyguard to
Osama bin Laden (see http://www.almasdaronline.com/article/95157).
83
A list of AQAP figures of interest to the Panel is provided in annex 30.
84
A description of the AQAP relationship with the tribes in Yemen is contained in annex 31.

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survive. If the tribes of Yemen were to turn against AQ AP, the organization would not
survive.
72. On 17 September 2017, AQAP released the eighth in a series of films, this one
entitled “Repulsing the Aggression”, which, for the first time, talked more about the
role of the United Arab Emirates in Yemen than it did about the Houthis. 85 This media
focus mirrored what AQAP was doing on the battlefield. Throughout the first half of
2017 more than two-thirds of AQAP attacks were directed against Houthi targets.
Since August that trend has been reversed and AQAP now targets United Arab
Emirates-backed troops more than it does the Houthis. More international pressure
on AQAP came on 25 October 2017 when the newly formed Terrorist Financing
Targeting Center 86 announced that it was sanctioning 11 Yemenis and two Yemeni
organizations for ties to AQAP and ISIS. 87
73. Partly as a result of this increased pressure and partly due to fighting on so many
fronts at once, AQAP has also struggled to maintain a sense of organizational unity
across the country. In a sign of internal fissures within the organization, AQAP
released a statement in October 2017 saying that the Shariah court in Ta ‘izz was no
longer operating under its instructions. Additionally, many of the group ’s media
releases in recent months have focused on surviving in times of “adversity” and
amidst “setbacks.” However, AQAP’s branch in Yemen has endured setbacks before,
most notably in 2004 and 2005 when the group was virtually eradicated. It has
managed to resurrect itself since that time. The Panel assesses that t he longer the
current conflict lasts in Yemen, the more recruits AQAP will attract.

F. Islamic State in Iraq and the Levant

74. Although much smaller than AQAP, the ISIL affiliate in Yemen is still capable
of carrying out coordinated large-scale attacks. 88 Much like AQAP, ISIL is mostly
active in Yemen’s southern and central governorates, particularly Bayda ’, Abyan and
Aden. 89 Indeed, some areas of Bayda’, where AQAP was active in 2016 and early
2017, are now active battle fronts for ISIL, which has le d some to believe that the two
organizations are working together. The Panel has seen no evidence to suggest that
the two groups are either working together or coordinating attacks. Instead, the
evidence suggests that, at most, there is a tacit non-aggression pact between AQAP

__________________
85
See http://jihadology.net/2017/09/17/new-video-message-from-al-qaidah-in-the-arabian-
peninsula-repulsion-of-aggression-8/.
86
The Terrorist Financing Targeting Centre was established in May 2017 during a visit by the
President of the United States, Donald Trump, to Saudi Arabia. The United States and Saudi
Arabia are co-chairs, and the other member countries are: Bahrain, Kuwait, Oman, Qatar and the
United Arab Emirates (see https://www.treasury.gov/press-center/press-releases/Pages
/sm0092.aspx).
87
The names of AQAP-affiliated individuals sanctioned by the member countries of the Terrorist
Financing Targeting Centre are listed at: https://www.treasury.gov/press-center/press-releases
/Pages/sm0187.aspx. Among the individuals sanctioned were the former Governor of Bayda ’,
Nayif al-Qaysi (QDi.402), who was replaced on 23 July 2017. Also sanctioned was Abu
al-Abbas, a Salafi leader in Ta‘izz, who has previously received funding and support from the
United Arab Emirates (see para. 45 above).
88
On 5 November 2017, ISIL attacked a Criminal Investigation Department building in Aden: a
suicide bomber rammed his vehicle into the gates, and along with three more individuals in
suicide vests, rushed into the building. ISIL later claimed that the attack killed 69 individuals,
and it identified its four fighters as coming from the governorates of Hadramawt, Ibb, Ta ‘izz and
Shabwah.
89
In general, ISIL has carried out three types of attacks in Yemen: suicide attacks, close quarter
assassinations and mortar attacks.

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and ISIL based on their common enemies. the Houthis, 90 and the security forces tied
to the legitimate Government and the Saudi Arabia-led coalition.
75. On 16 October 2017, the United States carried out its first direct strikes on ISI L
in Yemen, hitting two camps in Bayda’. 91 Less than two weeks later, on 25 October,
the United States, Saudi Arabia and the other countries partners in the Terrorist
Financing Targeting Center sanctioned five individuals for their ties to ISIL in
Yemen. 92 Since its initial strikes in mid-October 2017, the United States has carried
out several more air and drone strikes against ISIL, all of which, to date, have taken
place in Bayda’. 93
76. In addition to the increased pressure from the air, ISIL has also suff ered from
the collapse of the group’s so-called caliphate in Iraq and the Syrian Arab Republic.
The Panel has yet to see any evidence of an influx of ISIL fighters into Yemen. Instead
the opposite appears to be happening: low-level ISIL fighters appear to be defecting
to AQAP. 94 The Panel continues to investigate whether this is related to a lack of
outside funding coming into Yemen or to other factors.

IV. Arms and implementation of the targeted arms embargo

77. Pursuant to paragraphs 14 to 17 of resolution 2216 (2015), the Panel continues
to focus on a range of monitoring and investigative activities in order to identify if
there have been any violations of the targeted arms embargo involving the di rect or
indirect supply, sale or transfer to, or for the benefit of individuals and entities listed
by the Committee and the Security Council.
78. There have been no changes to the options for supply chains for the delivery of
weapons and ammunition to the individuals and entities listed by the Committee and
the Security Council and those acting on their behalf or at their direction reported by
the Panel on 31 January 2017. 95 There have been no reported maritime seizures of
weapons and ammunition during 2017, and only very limited seizures of arms-related
material have been identified on the main land supply route from the east of Yemen. 96
79. The Panel has now identified strong indicators of the supply of arms -related
material manufactured in, or emanating from, the Islamic Republic of Iran subsequent
to the establishment of the targeted arms embargo on 14 April 2015, particularly in
the area of short-range ballistic missile technology (see paras. 86 to 96 below) and
unmanned aerial vehicles (paras. 98 to 105 below).

__________________
90
Like AQAP, ISIL has a hierarchy of enemies with the Shia Houthis at the top. In August 2017,
the group released photographs of a Houthi commander it had crucifie d, identified as Abu
Murtada al-Muhatawari.
91
See http://www.centcom.mil/MEDIA/PRESS-RELEASES/Press-Release-View/Article/1344652
/us-forces-conduct-strike-against-isis-training-camps-in-yemen/. The two camps were named for
deceased ISIL leaders: Abu Bilal al-Harbi and Abu Muhammad al-Adnani. One week prior to the
United States strikes, on 9 October 2015, ISIL had released training photographs from those camps.
92
See https://www.treasury.gov/press-center/press-releases/Pages/sm0187.aspx. A list of ISIL
figures of interest to the Panel is provided in annex 32.
93
For example, the United States carried out three successive drone strikes on 10, 11, and
12 November 2017 in Bayda’, which killed five individuals.
94
However, the United States estimates that ISIL in Yemen has “doubled in size over the past year”
(see http://www.centcom.mil/MEDIA/PRESS-RELEASES/Press-Release-View/Article/1401383
/update-on-recent-counterterrorism-strikes-in-yemen/).
95
See S/2017/81, para. 60 and table 1.
96
See annex 33.

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A. Houthi-Saleh “land missile campaign”

1. Overview
80. The strategic “land missile campaign” of the Houthi-Saleh alliance against
Saudi Arabia continued during 2017, although at a reduced level of intensity (64 per
cent of the level in 2016). The Houthi-Saleh alliance continues to demonstrate a
mobile short-range ballistic missile or free flight rocket 97 capability to strike at Saudi
Arabia. This has a strategic impact by: (a) demonstrating a defensive weakness on the
part of Saudi Arabia to this threat, and compelling it to deploy disproportionately
costly counter-measures to protect itself from such attacks; (b) demonstrating the
vulnerability of the Saudi Arabian civilian population to such attacks; (c) countering
inaccurate Saudi Arabia-led coalition claims to have destroyed the missile stockpiles
in 2015, thus undermining the credibility of their wider media operations; and
(d) demonstrating that the Houthi-Saleh alliance is capable of directly threatening
Saudi Arabia. A summary of reported and confirmed launches of short-range ballistic
missiles and free flight rockets is contained in annex 34 to the present report.
Figure III illustrates launches of short-range ballistic missiles only.

Figure III
Launches of short-range ballistic missiles: 2015–2017

__________________
97
The free flight rockets are the improvised S-75 Dvina surface-to-air missile, referred to by the
Houthis as Qaher-1 missiles (see S/2017/81, para. 81 and annex 42).

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81. The tactical military impact of short-range ballistic missiles is limited due to
their small numbers, inherent inaccuracy and relatively small high explosive warhead
size (less than 600 kg to 950 kg).

2. Increased regional tensions

82. At approximately 20.07 hours (local time) on 4 November 2017 remnants of a
short-range ballistic missile landed within the perimeter of King Khaled International
Airport in Riyadh. 98 This particular attack 99 by the Houthi-Saleh alliance resulted in
an immediate escalation of regional tensions, with an announcement by the Saudi
Arabia-led coalition of the temporary closure of all ground, sea and air routes into
Yemen as of 6 November 2017.
83. The Panel travelled to Riyadh from 17 to 21 November 2017 to inspect the
remnants of the short-range ballistic missile attacks launched against Saudi Arabia by
Houthi-Saleh forces on 19 May, 22 July, 26 July and 4 November 2017. The Panel
also visited Saudi Arabia from 24 to 26 December 2017 to inspect remnants of a
further short-range ballistic missile attack on Riyadh on 19 December 2017. The
findings and conclusions of the Panel are set out below (see paras. 88–92).

3. Short-range ballistic missile capability of the Houthi-Saleh forces

84. It is certain that the pre-conflict Yemeni Missile Defense Command possessed
at least 18 SS-1 Scud-B missiles in 2004, and had also procured 90 Hwasong-6
(Scud-C type) missiles during the first decade of the 2000s. 100 During hostilities in
early 2015, the 5th and 6th missile brigades aligned themselves with the Houthi -Saleh
forces.
85. The initial Saudi Arabia-led coalition air strikes failed to completely destroy the
supply of short-range ballistic missiles. The first confirmed 101 Scud-C type 102 short-
range ballistic missile launch against Saudi Arabia took place on 29 June 2015, with
the last probable Scud-C type attack being on 26 July 2017. 103 The Qaher-1 free flight
rocket attacks covered in the report of the Panel dated 31 January 2017 104 continued
in 2017 until the last confirmed firing on 27 March 2017. 105

__________________
98
It was initially reported that this short-range ballistic missile was interdicted in flight by a
MIM-104 Patriot surface-to-air missile before reaching its intended target. From the physical
evidence inspected, the Panel can only comment that the rocket motor assembly may have been
intercepted. The propellant tank, which is designed to separate, had no traces of fragmentation
from an interceptor missile warhead. There was also a crater at the point of impact (King Khalid
International Airport).
99
There were two previous short-range ballistic missile attacks against the Riyadh area on
5 February 2017 (Muzahimiyah) and 19 May 2017 (Riyadh governorate).
100
Including: (a) Jane’s Defence Equipment and Technology Intelligence databases; and (b) a report
of the United States Congressional Research Services (see http://www.dtic.mil/cgi-bin
/GetTRDoc?AD=ADA521480). Twelve Scud-type missiles were discovered in transit to Yemen
on 10 December 2002, but after an initial detention the vessel was allowed to proceed to Yemen
to make the delivery as there was no legal reason to seize them at that time.
101
Letter to the Panel dated 4 October 2017 from Saudi Arabia.
102
Either Scud-B upgraded to Scud-C level, or a Hwasong-6 supplied by the Democratic People’s
Republic of North Korea.
103
Confirmed by the Panel from imagery of the warhead, which was a cluster munition type fitted to
Scud-C type short-range ballistic missile.
104
See S/2017/81, paras. 81–84 and annex 42.
105
There have been two unconfirmed reports of missiles been fired on 7 and 27 August 2017, which
could have been Qaher-1 type missiles.

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B. Extended-range short-range ballistic missiles

1. Background
86. In the reporting period, there have been four confirmed attacks by short -range
ballistic missiles with an extended range substantially beyond that normally expected
of the missiles known to be in the inventory of the Houthi -Saleh alliance. The launch
of the first missile was on 19 May 2017 (see table 1). 106

Table 1
Confirmed launches of extended-range short-range ballistic missiles by the Houthi-Saleh alliance in 2017 a
Date Event Range (km) Remarks

19 May Impacts in Riyadh province 965 First confirmed launch

22 July Impacts on Yanbu‘, west of 900+ Approximately 2 months since previous launch
Medina

4 Nov. Missile launched towards 1,043 b Approximately 3 months since launch of previous missile
Riyadh

19 Dec. Missile launched towards 915 Release of a video of the launch by the Houthi on
Riyadh 19 December 2017 c
Probably intercepted in flight

a
Source: letter from member State of 4 October 2017 (first two launches).
b
Since it is possible that the missile flew further than 1,000 km, it could more accurately be referred to as a medium -range
ballistic missile. As the range overlap is so small, the Panel will continue to refer to it as a short-range ballistic missile as it is
derived from that class of missiles. The range is based on the target event report from the Patriot system. The data obtained
through the Shared Early Warning Systems places the estimated launch point one degree of longitude further north, which
would mean a range of 937 km.
c
See https://mobile.almasdarnews.com/article/video-footage-houthis-long-range-missile-launch-saudi-arabia/.

87. A Houthi military spokesperson, major general Sharaf Luqman, admitted for the
first time on 30 March 2017 that missiles damaged by the air strikes were being
repaired and modified by Yemeni specialists. 107 The Panel has also not discounted the
idea that foreign missile specialists may be providing technical advice in Yemen, 108
or that Houthi-Saleh missile specialists may have visited a third country for training.
The Houthi forces almost certainly do not have the design or engineering capability
to manufacture a new type of short-range ballistic missile.

2. Technical analysis and finding

88. The Panel initially examined the options available to extend the range of the
Scud-C type short-range ballistic missile known to be in the Houthi-Saleh inventory,
and concluded that sufficient weight savings could not be made to such missiles, nor
could the power output be upgraded sufficiently to account for an extension of range
from a known maximum of 600 km to over 1,000 km.

__________________
106
There were also unconfirmed media reports of a short-range ballistic missile landing in Riyadh
province on 5 February 2017. If confirmed, this would be the first identified launch of an
extended-range short-range ballistic missile from Yemen.
107
sputniknews.com/middleeast/201703301052137016-yeminis-repair-soviet-missiles/.
108
https://english.alarabiya.net/en/features/2018/01/01/Who-are-the-Iranian-Revolutionary-Guard-
officers-leading-Houthis-in-Yemen-.html.

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89. Launches of short-range ballistic missiles beyond the range of 670 km were
observed in 2016, which indicates that a weight-saving programme to the Scud-C
types almost certainly took place in 2016 (see annex 35), achieving a limited range
extension of approximately 11.75 per cent for that type of missile. Evidence of this
includes the use of composite material compressed air bottles of a United States
design instead of the standard steel air bottles. 109 The Houthi refer to this missile as
the Borkan-2.
90. After inspecting the remains of the “22 July” and “4 November” extended range
short-range ballistic missile in Riyadh the Panel now finds that:
(a) Many of the internal design features, 110 external characteristics 111 and
dimensions of the remnants of the missile inspected by the Panel are consistent with
those of the Iranian designed and manufactured Qiam-1 missile. This means that they
were almost certainly produced by the same manufacturer. Figure IV shows the
position of the main components inspected by the Panel in relation to a Qiam 1.
Figure V is an illustration of the Scud-C type missile, while figure VI is an
illustration, for comparison, of the extended-range short-range ballistic missile
inspected by the Panel;

Figure IV
Major components and their relative position compared to a Qiam-1 short-range ballistic missile a

a
Image of the extended-range-short-range ballistic missile taken by the Panel in Riyadh on 19 and 20 November 2017 (Qiam -1
image from http://3.bp.blogspot.com/-qsK7VV6oZfc/Tq1ET0NyVdI/AAAAAAAAADo/NGlhWpeJTsw/s1600/Qiam-1.jpg).

__________________
109
The company could not trace these components owing to the large production volumes of such
bottles.
110
For example, the reversal of the positions of the fuel and oxidizer tanks in the missile body. This
configuration is only seen, within the known short-range ballistic missile systems, on the obsolete
Scud-A and the Iranian Qiam-1 missiles. Other design features of the extended-range short-range
ballistic missile include: (a) composite compressed air bottles; and (b) an upgraded guidance system.
111
For example: (a) the use of a mainly aluminium airframe; and (b) the lack of fins at the rear of
the missile. Scud-C variants have fins, the Iranian Qiam-1 does not.

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Figure V
Illustrative main section layout of Scud-C missilea

a
Panel diagram (not to scale). Valves are shown larger proportionally than on real missile to assist in identification (see
annex 36, appendix C, figure C.36.1).

Figure VI
Illustrative main section layout of an extended-range short-range ballistic missilea

a
See annex 36, appendix C, figure C.36.2.

(b) A standard Qiam-1 missile has an operational range of 750 to 800 km, as
compared to the over 1,000km range of the missile examined by the Panel. The Panel
finds it is not a Qiam-1 short-range ballistic missile, but a derived lighter version,
designed specifically by the manufacturers of the Qiam-1 to extend the range to over
1,000 km by reducing weight; 112
(c) Variations in build quality and welding standards identified by the Panel
mean that the technology was almost certainly transferred in modular system form, 113
requiring the missile engineers of the Houthi-Saleh alliance to assemble and
functionality test the missiles prior to operational deployment;
(d) Three jet vane housings from the remnants of the 4 November 2017 missile
had markings (see figure VII) very similar in design to the company logo of Shahid

__________________
112
The Iranian designed and manufactured Shabab-3 missile has a range of 1,300 km, so this missile
was almost certainly not designed to fill in a “range gap” in the Iranian ballistic missile suite.
113
The modular system consists of: (a) warhead; (b) guidance unit; (c) fuel tank; (d) oxidizer tank;
and (e) rear section (rocket motor, actuators and pumps).

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Bagheri Industries, 114 based in the Islamic Republic of Iran (see figure VIII). A tracing
request has been sent to the authorities in the Islamic Republic of Iran; 115

Figure VII Figure VIII

Enhanced image of Shahid Bagheri Industries logo on Shahid Bagheri Industries logo on a trade stand a
a jet vane housing a

a
a
Image taken by the Panel. Source: http://www.sns.co.ir/?p=327.

(e) The Houthi-Saleh alliance has obtained access to “extended-range”

missile technology more advanced than the Scud-C and Hwasong-6 short-range
ballistic missiles that the alliance was known to possess in January 2015. They refer
to this missile as the Borkan-2H, and this is the name attributed to the missile by the
Panel;
(f) It is highly probable that the route used to supply the Borkan-2H
components was the main land supply route into Houthi-Saleh-held territory
following a ship-to-shore transfer to the ports in the area of Nishtun and Ghaydah in
Mahrah governorate. 116 Although concealment in cargo of vessels offloading in the
Red Sea ports is unlikely, it cannot be excluded as an option;
(g) The use of the Borkan-2H against civilian targets in Saudi Arabia is a
violation of international humanitarian law (see para. 179 below and annex 64);
(h) As of yet, the Panel has no evidence as to the identity of the supplier, or
any intermediary third party; 117
(i) As the Islamic Republic of Iran has not provided any information to the
Panel of any change of custody of the components for the building of extended -range
short-range ballistic missiles, the country is in non-compliance with paragraph 14 of
resolution 2216 (2015) in that it failed to take the necessary measures to prevent the

__________________
114
Also possibly known as Shahid Bakeri Industries. This organization is a subsidiary of the Iranian
Aerospace Industries Organization.
115
Request sent in Panel letters dated 9 and 12 December 2017.
116
The Panel notes the redeployment of the 123rd Infantry Brigade to Ghaydah and the appointment
of a new Governor of Mahrah, Rajih Said Bakarit, on 27 November 2017, as part of the strategy
to improve security along this main supply route.
117
The Panel sent tracing requests to the Member State of the manufacturer on 26 November,
11 December and 14 December 2017.

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direct or indirect supply, sale or transfer of such technology to the Houthi -Saleh
forces, an entity acting at the direction of listed individuals. 118
91. The Panel’s observations and full technical analysis to support the above
findings are presented in annex 36.

3. Related case: liquid propellant oxidizer field storage tanks for short-range
ballistic missiles
92. In January 2017, a consignment of industrial process equipment was seized by
a member State of the Saudi Arabia-led coalition near Ma’rib, along the main supply
route from the Mahrah governorate. Two hazardous chemical storage tanks, whic h
were also seized in the shipment, are almost identical in design, configuration and
size to the oxidizer storage field tanks used for the Scud -type missile or other short-
range ballistic missile systems (see figures IX and X for comparison).

Figure IX Figure X
Oxidizer field storage tanks seized near Ma’riba Scud oxidizer field storage tank a

a
Stored at Gharyan Air Defence base, Libya (2017).
a
Source: confidential. Confidential source.

93. Although most of the other equipment seized is also standard for the chemical
or food processing industries, some items show artisanal crafting such as unusual
welding connectors (pipelines and flanges) and other improvised engineering
features. This proves adaptation for a purpose other than initially designed for. The
Panel finds that the equipment has military utility for the reprocessing of inhibited
red fuming nitric acid, the oxidizer for the liquid bipropellant used in short -range
ballistic missiles.
94. Tracing requests by the Panel have identified that: (a) two components were
manufactured in the Islamic Republic of Iran; (b) three components were supplied to
the Islamic Republic of Iran from foreign manufacturers, one of which was paid for
through a European bank account and had Farsi labelling added to it. 119
95. The Panel as of yet has no evidence as to the identity of the supplier, or any
intermediary third party. 120

__________________
118
The Panel wrote to the Islamic Republic of Iran on 15 December 2017, informing the authorities
of this finding and again requested any information the Government may have as t o any change
in custody of these components. The Panel then visited the Islamic Republic of Iran from 15 to
17 January 2018 for further discussions. For the Islamic Republic of Iran ’s response to the
Panel’s findings, see annex 36, appendix E.
119
See full analysis in annex 36, appendix A.
120
The Panel sent tracing requests to the Member State involved on 11 December 2017.

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96. Since it has not provided any information to the Panel of any change of custody
of the liquid bipropellant storage tanks or accounted for the presence of Iranian
manufactured components, the Islamic Republic of Iran is in non -compliance with
paragraph 14 of resolution 2216 (2015) in that it failed to take the necessary measures
to prevent the direct or indirect supply, sale or transfer of military equipment related
to extended-range short-range ballistic missiles to the Houthi-Saleh forces, an entity
acting at the direction of listed individuals. 121

C. Houthi use of unmanned aerial vehicles

97. During 2017 the forces of the Houthi-Saleh alliance continued to make limited
use of small and medium-sized unmanned aerial vehicles for intelligence,
surveillance, target acquisition and reconnaissance, 122 and in the case of the medium-
sized unmanned aerial device, explosive attacks. 123 The small unmanned aerial
vehicles are all based on commercially available syste ms, such as the X-8 Skywalker,
which have a military utility for surveillance and target planning.

1. Qasef-1 unmanned aerial vehicles

98. On 27 November 2016, a Dubai registered truck (Dubai/13933) was intercepted
at the al-Milh checkpoint near Ma’rib and was found to contain components for at
least six complete Qasef-1 unmanned aerial vehicles and components for up to
another 24. 124 Components were also recovered by forces of the United Arab Emirates
from crashed unmanned aerial vehicles in Ma’rib (19 September 2016) 125 and Aden
airport (16 November 2016). 126
99. The Panel finds that the medium-sized Qasef-1 unmanned aerial vehicle is
virtually identical in design, dimensions and capability to that of the Ababil -T, 127
manufactured by the Iran Aircraft Manufacturing Industries. 128 The analysis of the
Qasef-1 UAV is provided in annex 38.
100. The Panel has identified that at least two components of the system were
supplied to the Islamic Republic of Iran after the implementation of the targeted arms
embargo on 14 April 2015. The route for the funding of one of the components used
a third party broker, and an intermediary account in a third country. This is indicative
of a deliberate attempt to disguise the final destination of the components.
101. The Panel finds that, based on: (a) the design of the unmanned aerial vehicles;
and (b) the tracing of component parts, the material necessary to assemble the Qasef -1
unmanned aerial vehicles, emanated from the Islamic Republic of Iran.

__________________
121
See footnote 118 above.
122
Initially reported in the Panels’ 2017 confidential mid-term update.
123
See annex 37 for summary of explosive attacks on forces of the United Arab Emirates.
124
Information contained in a letter from a Member State: information includes Qasef -1 serial
Nos. 22-122-33, 22-122-34, 22-122-38, 22-1721-39, 22-1721-X, 22,1721-0 and 22-1722-9.
125
Letter from Member State, including Qasef-1 serial No. 22-1728.
126
Qasef-1 serial No. 22-122-39.
127
Janes’ database (see www.janes.his.com).
128
Iran Aircraft Manufacturing Industries is a subsidiary of the Iran Aircraft Industries
Organization, owned by the Government of the Islamic Republic of Iran, and is part of the
Defence Industries Organization conglomerate.

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2. The “Rased” unmanned aerial vehicles

102. The unmanned aerial vehicles referred to as the “Rased” (surveyor) by the
Houthi-Saleh alliance is almost certainly the Skywalker X-8 unmanned aerial vehicle
(see annex 39).

3. Embargo violations
103. The Panel considers that the supply of unmanned aerial vehicles specifically
designed for military intelligence, surveillance, target acquisition and reconnaissance
or attack operations to entities acting on behalf of individuals or entities designated
by the Security Council falls within the scope of “military equipment” under
paragraph 14 of resolution 2216 (2015).
104. As the Islamic Republic of Iran has not provided any information to the Panel
of any change of custody of the Qasef-1 or the components, 129 the Islamic Republic
of Iran is in non-compliance with paragraph 14 of resolution 2216 (2015) in that it
failed to take the necessary measures to prevent the direct or indirect supply, sale or
transfer of military related equipment to the Houthi-Saleh forces, an entity acting at
the direction of listed individuals.
105. The Panel considers that since commercially available unmanned aerial vehicles
can have significant military utility for surveillance and target reconnaissance, or can
be easily modified to operate as attack drones, they should also fall within the scope
of “military equipment” under paragraph 14 of resolution 2216 (2015) when used for
military purposes.

D. Waterborne improvised explosive devices

106. The Houthi have successfully deployed waterborne improvised explosive

devices on at least two occasions: (a) an attack against a Royal Saudi Arabian Navy
frigate; and (b) in the port of Mukha. The Panel notes that the United Arab Emirates
have released information on a seizure of this type of explosive device to the United
States and a commercial armament investigative company.
107. Although the Panel has seen imagery and third-party analysis of waterborne
improvised explosive devices, it does not include any analysis or findings in the
present report as the information it has seen does not meet the criteria of transparency
and verification contained in paragraphs 21 and 22 of the best practices and methods
recommended in the report of the Informal Working Group of the Security Council
on General Issues of Sanctions (S/2006/997).
108. The Panel finds that the United Arab Emirates is in non-compliance with
paragraph 8 of Security Council resolution 2342 (2017), in that it did not provide
unhindered access to documents and sites, in order for the Panel of Experts to execute
its mandate. The Panel further finds that it is also in non-compliance with
paragraph 17 of Council resolution 2216 (2015), in that it did not promptly supply an
initial written report on the seizure to the Committee, nor a subsequent written report
within 30 days of the seizure.
109. The Panel cannot therefore independently confirm that the technology was
transferred to Yemen after the implementation of the targeted arms embargo on
14 April 2015 (see resolution 2216 (2015), para. 14), and continues to investigate.

__________________
129
Panel letter to Islamic Republic of Iran dated 19 December 2017.

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E. Sea mines

110. The Panel has identified further use of sea mines during 2017. The chronology
of incidents is contained in annex 40 to the present report.

1. Iranian manufactured “bottom” sea mines

111. The United Arab Emirates reported the discovery of at least thre e sea mines in
the port of Mukha to the Panel. 130 The recovered sea mines (see figure XI) are consistent
in shape and size to the Iranian manufactured “bottom” sea mine (see figure XII),
which was first identified at an Iranian arms fair in October 2015.

Figure XI Figure XII

Sea mine recovered from Mukha (2017) Sea mine at Iranian Arms fair (2015)

112. The Panel has written to Iran requesting clarification as to the nomenclature and
export status of the type of sea mine shown in figure XII but has yet to receive a
response.

2. Use of improvised sea mines by the Houthi-Saleh alliance

113. The Panel has investigated the confirmed use of improvised sea mines 131 by the
Houthi-Saleh alliance. 132 One mine was recovered from Midi on 23 March 2017 (see
figure XIII) and two of a similar but not identical design from Thwaq Island 133 (see
figure XIV) on, or around, 27 May 2017. The recovery from Thwaq Island, which is
uninhabited, is evidence that these types of mines have been deployed in the Red Sea
by the Houthi. Since approximately 12 improvised mines were seen in a shore storage
area in Houthi-controlled territory in November 2016 134 it is highly likely that more
than the three recovered improvised mines were deployed, and thus a threat to the sea
lines of communication in the Red Sea now exists. The length of the threat posed by
such mines is dictated by the battery life of their power source, which is dependent
on the type of AA battery used, however, it could be between 6 to 10 years.

__________________
130
Initially reported in para.61 of the 2017 confidential midterm update.
131
Reported in a letter to Committee dated 13 September 2017.
132
Initially reported in paras. 63 and 64 of the 2017 confidential midterm up date.
133
Coordinates 16° 18' 42.61" N, 42° 41' 10.77" E.
134
Confidential source.

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Figure XIII Figure XIV

Improvised sea mine recovered near Midi Improvised sea mines recovered from area of Thwaq Island
(23 March 2017)a (May 2017)a

a a
See www.youtube.com/watch?v=6H04M4Vpif8 Imagery from a Member State and confirmed by the Panel.
&feature=youtu.be.
The Panel would not normally use uncorroborated single source social media, but as the imagery shows a design virtually
identical to that described by a confidential eyewitness the Panel has included it.

114. Although designed to be used as moored contact mines, the design is flawed and
these mine types will not always moor as designed, or may break free of their
mooring. The recovered mines from Thwaq Island are evidence that some of these
mines have already become drifting sea mines. A detailed technical and threat analysis
is provided in annex 41.

F. Anti-tank guided missiles

115. In its report dated 31 January 2017, 135 the Panel reported on the seizure and
operational use of anti-tank guided missiles with characteristics very similar to that
of the Iranian manufactured Dehleyvah. The lack of open source information at the
time prevented the Panel from confirming them as Dehleyvah missiles.
116. The Panel has now compared the markings and design features of the 9M133
Kornet and Iranian Dehleyvah missiles seized by the French naval vessel La Provence
on 20 March 2016. 136 The findings, provided in annex 42 to the report, will act as a
definitive source 137 for future investigations and identification.

G. Black market

1. Small arms ammunition

117. The Panel has continued to monitor the price of small arms ammunition on the
black market. Although prices have now started to rise (by 20 per cent during 2017),
as shown in annex 43, the cost of (for example) one type of 7.62 mm x 39 mm round
in Aden is now still significantly less ($0.94) than it was prior to the conflict ($1.60).
This gives a strong indication that small arms ammunition is still readily available to
all parties in Yemen, and that no external resupply is needed as yet.

__________________
135
S/2017/81, paras. 76 and77 and annex 37.
136
See S/2017/924, annex 7.2.
137
See also https://www.ihs.com/products/janes-weapons-ammunition.html.

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2. Suspicious end user certificates

118. The Panel has obtained 138 a copy of a number of end-user certificates issued by
the Houthi-Saleh administration that are designed to support the procurement of
weapons and ammunition from Bulgaria, China, the Philippines, the Islamic Republic
of Iran, Serbia and the Slovak Republic by the then Houthi-Saleh administration (see
annex 44). The Panel has contacted these Member States; Bulgaria, China , the
Philippines and the Slovak Republic have all confirmed that these end -user
certificates have not been presented for any arms purchases from them.
119. The company authorized to broker the above potential arms trades, Al Fosal Trading
(also known as Fusal), is listed as being managed by Adeeb Fares Mohamed Mana ’a, the
son of designated individual, and known arms trafficker, Fares Mohammed Hassan
Mana’a (SOi.008). 139 Fares Mana’a is currently a Sana’a based minister of state. 140
120. The date of the documentation, 6 July 2015, is three months after the Houthi -
Saleh alliance took control of Sana’a. By that time, as reported by the Panel is its
report dated 31 January 2017, 141 the Houthi-Saleh alliance had taken control of
potentially up to 68 per cent of the national arms stockpile. It is thus unlikely that
they would have needed at that point to be exploring means of procuring the small
arms, light weapons and ammunition listed in these end -user certificates. It is more
likely that Fares Mohammed Hassan Mana’a seized an opportunity to use his contacts
in the then new Houthi-Saleh administration to obtain appropriate documentation that
could be used to support arms procurement for his regional arms business.
121. As previously reported by the Panel, 142 both Fares Mana’a and Adeeb Mana’a
were involved in a separate illicit regional arms transfer during the period from 2013
to2015. The involvement of Fares Mohammed Hassan Mana’a as part of the brokering
company, and his known relationship with the Houthis, means that any future
potential regional transfer using these end-user certificates would still be to the
financial benefit of listed individuals, and thus a violation of paragraph 14 of
resolution 2216 (2015).

H. Increasing the effectiveness of the targeted arms embargo

122. The deployment of advanced extended-range short-range ballistic missiles technology

by the Houthi-Saleh forces demonstrates a vulnerability in the current inspection and
enforcement measures to well-planned shipments of non-explosive arms and arms-related
material.143 Only the Government of Yemen and the Saudi Arabia-led coalition are in a
position to improve interdiction measures to cover the land route from Mahrah.
123. The Panel has examined options for enhancing inspection rates for the United
Nations Verification and Inspection Mechanism for Yemen (UNVIM) system so as to
improve the confidence of the Saudi Arabia-led coalition in the process. A permanent
UNVIM presence at Hudaydah port, would: (a) serve to increase the confidence of the
Saudi Arabia-led coalition that illicit shipments through that port would be made more

__________________
138
Confidential source.
139
Listed under authority of paragraph 8 to resolution 1844 (2008) on 12 April 2010 by the Security
Council Committee pursuant to resolutions 751 (1992) and 1907 (2009) concerning Somalia and
Eritrea.
140
Appointed on 28 November 2016.
141
See S/2017/81, para. 78 and annex 39.
142
Ibid., para. 80 and annex 41.
143
As noted in the Panel’s confidential medium-term update, the seizure of components for military
unmanned aerial vehicles from the Houthi-Saleh forces by the Saudi Arabia-led coalition forces
in Ma’rib in 2016 is another indicator of this vulnerability.

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difficult; (b) act as a deterrent to any illicit shipments that may be taking place. The
deployment of a naval or fleet support vessel anchored at the entrance of Hudaydah port
under the auspices of the United Nations would negate the known problems of a
permanent shore-based presence. Such a vessel would have the necessary surveillance
and weapons systems for self-protection, with the ability to take UNVIM inspectors
ashore, when necessary. When ashore, armed naval ratings or marines from the host
vessel could provide close protection, with port security being contracted to private
security companies approved by the Houthi administration under a memorandum of
understanding. This would significantly reduce the personal risk to UNVIM inspectors
and negate the logistic and security requirements needed for a permanent shore presence,
while ensuring a neutral inspection and monitoring presence during commercial vessel
discharges. The vessel could also serve as a base for capacity- building training of a
neutral Yemeni coast guard, which would combine elements from both parties.

V. Economic context and overview of finance

124. In accordance with its mandate, the Panel has investigated the economic context
in which individuals designated pursuant to resolutions 2140 (2014) and 2216 (2015)
and their networks have continued to operate in violation of sanctions measures. In
particular, the Panel has examined the flow of money, the transfer of wealth and the
establishment of new shell companies to finance operations that threaten th e peace,
security or stability of Yemen.
125. The Panel finds that during 2017 the legitimate Government, local authorities,
the Houthi-Saleh alliance and other militia forces all continued to collect “State”
revenues in their respective areas with only a limited return by way of the provision
public services. Their actions have eroded the foundations of the formal economy and
created a liquidity problem, increasing the likelihood of a collapse of the Yemeni
banking and financial system. Conditions now exist that are conducive to money
laundering, an additional impediment to a peaceful political transition and recovery.
The continuing conflict has enabled new profiteers of war to emerge from Yemen,
who are gradually replacing the traditional business communities based in Sana’a and
Ta‘izz. This will certainly create new challenges and additional spoilers.

A. Control of State economic resources by the Houthis and

their affiliates

1. Revenue collected by the Houthis from State assets

126. The Houthis continue to directly control most of the national economy in their
areas through ministers and managers loyal to them, or through deputies and
revolutionary committees who act as supervisors within their organizations.
127. The Panel has analysed non-tax revenues from the latest available State budget
(2011) in order to evaluate what could potentially be available for Houthi exploitation.
This equates to approximately 2,818 billion rials ($11.3 billion), 144 of which a minimum
of 407 billion rials ($1.62 billion) might be under their control (see annex 45).

__________________
144
The official exchange rate is fixed by the Central Bank of Yemen at $1 to 250 Yemeni rials in Sana ’a
and at a floating rate of about $1 to 370 rials (since 15 August 2017); the market rate on that date.
The rate has increased continuously since then, reaching 400 rials per dollar by 31 December 2017.
The Panel, in analysing the Sana’a-based economy, has used the official rate of 250 rials to the dollar
or the market rate of 370 rials to the dollar (figures rounded to nearest $100,000).

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128. Telecommunications companies are the main source of revenue for the Houthis
in Sana’a. 145 On 21 August 2017, the Sana’a based minister of telecommunications,
Julaidan Mahmood Julaidan, 146 an affiliate of the General People’s Congress,
informed a media conference that mobile telecommunications companies have
transferred 98 billion rials ($264.8 million) during the 20 months since he took over
the ministry on 1 December 2016. 147 This amount, which is not denied by the Houthis,
represents an equivalent of $159 million per annum.
129. Tobacco sales account for the second main source of revenue available to the
Houthis. For example, Kamaran Industry and Investment declared that its 2015 tax
and customs duties bill was 23.9 billion rials ($64.7 million). 148 The Panel estimates
an equivalent amount from the other two producers. 149
130. In order to increase custom revenues the Houthis started to collect additional
customs duties on commodities imported through the area s under the control of the
legitimate Government (see annex 46).
131. On 28 May 2016, Yahya Mohamed Abdullah al-Osta was appointed by
Mohamed Ali al-Houthi as the acting head of the Sana’a-based Yemen customs
authority. 150 Since then he has overseen the implementation of illegal mechanisms for
the collection of customs duties for the benefit of entities and individuals acting on
behalf and under the control of Abdulmalik al-Houthi.
132. On 4 April 2017, the Sana’a based ministry of finance established new
permanent customs posts at the Amran and Dhamar checkpoints, 151 designed to
exploit the additional road traffic as a result of the decrease of traffic through the
Hudaydah port route.

2. Black market fuel

133. The Panel finds that the distribution of fuel and oil products remains one of the
main sources of revenue for the Houthis. The monopoly on the import and distribution
of oil products by the Yemen Petroleum Company was terminated by the Houthis on
28 June 2015. 152 They orchestrated a private bidding competition for the distribution,
which now allows them to control the sector, mainly through the use of black market
distributors under their control.
134. Data available to the Panel between May 2016 and July 2017, when the official
exchange rate was at 250 rials to $1, indicates that Houthi revenue from the black -

__________________
145
Four telecommunications companies are operating in Yemen: (a) mobile (State owned);
(b) Y Telecom (under State control); (c) Sabafon, associated with Hamed Al Ahmar; and
(d) MTN, known to be associated with Shaher Abdulhaq, although the Panel has learned that he
probably transferred his shares to MTN South Africa in exchange for shares in that company.
146
Reported as executed by the Houthis after 4 December 2017.
147
General People’s Congress-affiliated television, Al-Yemen Alyoum, 21 August 2017 (see
https://www.youtube.com/watch?v=RlsXBlGWvhk).
148
See http://www.kamaran.com/english/research_and_development.php.
149
Three companies associated with brands such as Pall Mall and Rothmans control the sale of tobacco
in Yemen. One being the Kamaran United Industries Company of the HSA Group. The State collects
90 per cent of the sales price for each pack sold, in addition to 18 rials for various other fees.
150
Mohamed Abdullah al-Osta was a mid-level staff member working as a legal adviser within the
ministry of finance.
151
Decision 138 of 2017 (see http://customs.gov.ye/news_show_ar.php?id=132).
152
Fuel distribution in Yemen has always included revenue gained from smuggling across the
region. Fuel in Yemen was not taxed, but subsidized, the arbitrage thus making it profitable for
smuggling across the Horn of Africa. The Houthis took Sana’a using the pretext of the removal
of fuel subsidies by the Government under the former Prime Minister Mohammed Basindawa.
Currently there are no taxes or subsidies on fuel imports.

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market sale of oil products delivered at the Red Sea ports of Hudaydah and Ra ‘s Isa 153
could be as high as 318 billion rials ($1.27 billion) 154 (see annex 47). 155
135. The Panel noted that to date 61 companies have applied for entry clearance
through UNVIM 156 for 234 tankers, of which 173 have been allowed to deliver fuel. 157
The list of consignees is provided in confidential annex 48. The Panel noted that only
11 companies have continued to import fuel during 2016 and 2017 while 12 companies
appear to have ceased importing to Yemen after 1 March 2017 and 11 new companies
have emerged since that date. This is indicative of a Houthi strategy to take control
of oil imports. Further evidence includes:
(a) Only the Alhutheily Group, with a previous track record in the oil industry,
has continued to operate at the same level, (see consignee line 22 in figure XV: details
are given in annex 48, appendix 2); 158
(b) The Falak Shipping Company, used by the Tawfiq Mathar brothers, which
used to import fuel to Yemen for the Yemen Petroleum Company during the Saleh era,
has ceased to operate through the Yemeni Red Sea ports;
(c) All current active oil importers are Houthi affiliated.

Figure XV
Change of fuel consignees during 2016 and 2017

136. The Panel continues to monitor the situation in order to assess if the space lost
by pre-Houthi era businessmen is a consequence of the conflict, or part of a strategy
to replace them with what Yemenis are calling “Generation 2017” businessmen, (in
reference to Houthi business associates in Yemen). The Panel is investigating the
change of beneficial ownership of the Vulcan Group, the most important supplier for
the Yemeni Ministry of Defence during the Saleh era. 159

__________________
153
Closed since June 2017.
154
Central Bank of Yemen rate of $1 = 250 rials.
155
Data collected from: (a) UNVIM records of fuel delivered since May 2016; (b) market prices in
Yemen for fuel delivery, transport and storage; and (c) other fees corroborated with traders and
sources inside Yemen.
156
See https://www.vimye.org/docs/GoY Announcement of UNVIM Launch.pdf .
157
The amount delivered equals 2,358,953 tons of fuel products, as at 30 November 2017.
158
ATICO Trading and Company, registered in Yemen, is a traditional operator in the oil industry
(see http://www.alhutheily.com/index.php/contact).
159
See http://vulcanyemen.com/. The Panel has evidence indicating the owner’s (Khalid Ahmed
Alradi) involvement of previous contracts. The Houthis killed him on 26 August 2017 for being a
Saleh supporter.

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3. Risk of the looting and trafficking of antiquities and cultural objects

137. The Panel has investigated the risks of smuggling of antiquities and cultural
objects from conflict areas in Yemen for sale abroad (see annex 49).
138. A case of artefacts seized in Switzerland between 2009 and 2010 arriving from
Qatar and the United Arab Emirates, although still under a judicial process, 160 could
assist the Panel in identifying smuggling methods and networks. Although the
artefacts left Yemen before the imposition of sanctions, the Panel is investigating this
case as the objects in question were illegally exported, in violation of the Yemen Law
of Antiquities N21/1994, 161 during the Saleh regime and may lead to the identification
of more of the Saleh family assets. The market value of the artefacts is estimated at
more than $1.5 million.
139. As there is no official record of Yemeni cultural heritage, the interdiction of
antiquities exported and sold for profit abroad is very difficult to ascertain. The Panel
has seen images posted on the official media sites of parties in Lahij, Sana ’a and
Ta‘izz showing precious artefacts abandoned without any protection mechanism.
Recently, al Masirah television, showed images of the house o f Tawfiq Saleh Abdulla
Saleh, the former chairman of Kamaran. 162

B. Money supply problems

1. Liquidity in Yemen and the Central Bank of Yemen

140. In Houthi-controlled territory, a central bank structure with private banks and
finance institutions continues to operate. 163
141. In 2017 the legitimate Government managed to print 600 billion rials
($1.6 billion). 164 The printing was aimed at: (a) securing a reserve to restart the
payment of salaries; (b) improving the circulation of cash in all of Yemen a s the M1 165
money supply is now depleted; and (c) to replace damaged banknotes. None of these
objectives have yet been achieved. 166
142. The Houthis tried to solve the liquidity problem using several approaches, which
have all failed so far, including:
(a) The corrupt use of a food voucher system by an individual reported to be
“Abu Nabil al-Qaramani”, who operates with Houthi permission for their financial
benefit (see annex 52);
(b) An attempt to use 5,000 rial promissory notes printed outside Yemen was
foiled by a seizure in the Government controlled area of Jawf, on 25 May 2017, of a

__________________
160
See http://ge.ch/justice/vestiges-archeologiques-le-ministere-public-confisque-des-objets-
provenant-de-palmyre-en-syrie-du-ye.
161
Amended by Law 8/1997 of 17 February 1997.
162
See http://www.yafa-news.net/archives/263955 and http://almasirah.net/gallery/preview.php?
file_id=10481#.Wiifxroebms.whatsapp (at minute 15.36).
163
All of the 18 banks licensed to operate in Yemen have their main office in Sana ’a, apart from the
National Bank of Yemen, known as Al Ahli Bank, which has its main office in Aden (see annex 50).
164
Printing by the Russian GOZNAK Joint Stock Company (see http://goznak.ru/en/).
165
M1 is a metric that measures the most liquid components of the money supply. It includes cash
and assets that can quickly be converted to currency.
166
The M0 (or M-zero) money supply in Yemen is estimated to be 1,129.5 billion rials according to
a 2014 report issued by the Central Bank of Yemen. This could represent 50 per cent of the M1
money supply according to a Bank official (information provided to the Panel meetin g in Riyadh,
June 2017). Banknotes older than six years are likely to be torn and invalidated for transactions.
Data on the annual printing of banknotes is provided in annex 51.

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truck carrying 35 billion rials ($140 million) worth of such notes. This denomination
has not been used so far for transactions (see annex 53).
143. The Panel submitted a 5,000 Yemeni rial note for forensic analysis in order to
identify the parties behind the counterfeit as well as external entities and individuals
supporting them.
144. The Panel noted that on 20 November 2017, the Office of Foreign Assets
Control of the United States Department of the Treasury designated an Iranian
network and ForEnt Technik GmbH, 167 an Iranian-owned, Frankfurt-based company,
for their involvement in the printing of the above-mentioned counterfeit Yemeni bank
notes. 168 The Panel continues to investigate this matter.

2. Cross-border trafficking of money and gold

145. The Panel has investigated three cases of trafficking of finance assets for the
benefit of the Houthi-Saleh alliance acting on behalf of listed individuals (see table 2).

Table 2
Financial seizures in Mahrah: 2017
(Value given in millions of United States dollars)

Date Location Route Smugglers Item seized Value

9 May Shehen, Yemen to the United Arab Yemeni Banknotes 3.42

Mahrah Emirates
7 gold bars

17 July Shehen, Yemen to the United Arab United Arab Emirates- 7,174,700 Saudi riyals 1.91
Mahrah Emirates based Yemenis

27 July Shehen, Yemen to the United Arab Citizens of the United Arab 700,000 Saudi riyals 0.19
Mahrah Emirates Emirates
42 gold bars

146. These cases illustrate the level of smuggling activity in Mahrah governorate (see
annex 54).

C. Financial consequences of the conflict on the import of food

147. Restrictions imposed by the parties to the conflict on imports has resulted in
significant additional financial costs to importers. Many suppliers and freighters are
no longer willing to take the risk of entering into transactions with Yemeni importers.

1. Hard currency exchange problems

148. The main challenge is that hard currency is now mainly exchanged through the
underground economy, with all the associated risks linked to corruption and money
laundering. Currency transfers from Yemeni workers and the diaspora abroad has mainly
been in Saudi riyals. Prior to the current conflict, any excess of Saudi riyals accumulated
by Yemeni banks and money exchanges used to be transferred by air to Bahrain, where it
was exchanged for United States dollars and converted into letters of credit.

__________________
167
See http://forent-tech.com/index.html.
168
See https://www.treasury.gov/press-center/press-releases/Pages/sm0219.aspx.

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2. Challenges facing the import of goods

149. The situation in Yemen would have been far worse were it not for the fact that
the outlook for the international trade in food products has been favourable to
importers. The current cost of food commodities and shipping from suppliers remains
low compared to the pre-conflict period (see example in table 3), although some
additional shipping costs are incurred for the final leg of the journey into Yemeni
ports due to delays at sea and demurrage at the ports. 169

Table 3
Cost of wheat (No.1 Hard Red Winter): 2012–2017a
(In United States dollars per ton)

a
Source: United States Department of Agriculture, Market News (see
http://www.indexmundi.com/commodities/?commodity=wheat&months=60 ).

150. Delays, diversions and seizures of cargo of commercial vessels by the Saudi
Arabia-led coalition during inspections have contributed to significant financial losses
for ship owners and traders. The cost of these delays to owners and shippers, which can
reach $30,000 per day, have gradually eroded their credibility with their international
trading partners (suppliers, insurers and freighters). Details of the case study on the
confiscation of the Liberia-flagged tanker, MV Androussa, on 4 April 2017, while it
was proceeding to Ra‘s Isa, are given in confidential annex 55. The Panel visited the
tanker in Yanbu, on 25 December 2017, with Saudi Arabian officials. The Panel and the
officials of Saudi Arabia were shown some steel pipes next to a workshop that the
officials considered to be suspicious, but which the Panel estimated were most probably
for the vessel’s maintenance. Saudi Arabia has not yet submitted an inspection report,
which is required within 30 days under paragraph 17 of resolution 2216 (2015).170 The
case illustrates the loss for traders and shipping companies operating in Yemen. 171
One trader has seen three planned cargo deliveries for the remainder of 2017 cancelled
owing to the risk posed by the conflict (figure XVI).

__________________
169
Houthi ministry of transport and trade (see http://www.moit.gov.ye/moit/sites/default/files/%20%
D8%A7%D9%84%D8%AB%D8%A7%D9%84%D8%AB%D9%85%D9%86%D8%A3%D9%83
%D8%AA%D9%88%D8%A8%D8%B1.pdf).
170
UNVIM submitted an interim Member State monitoring report on 12 May 2017, covering the
inspection in Jeddah, between 8 and 16 April 2017, as well as subsequent inspections in Yanbu
port between 17 April and 11 May 2017. The report concluded that no prohibited items were
found on board the vessel, but that the inspection team had discovered a series of inconsistencies,
irregularities and misdeclarations as well as traces of high explosives in ballast tanks 3, 4 and 6.
171
The tanker, and its cargo of 41,500 tons of gas oil worth more than $23 million, was
subsequently formally confiscated on 14 September 2017 (see https://www.uqn.gov.sa/articles/
1507838892820964500/).

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Figure XVI
Extract from a cancellation letter received by an importer a

a
Confidential source: Importer.

VI. Assets freeze

151. Pursuant to paragraphs 11 and 21 (b) of resolution 2140 (2014), as extended by
paragraph 5 of resolution 2342 (2017), the Panel has continued to gather, examine
and analyse information regarding the implementation by Member States of assets
freeze measures. The Panel has continued to focus on the five listed i ndividuals and
on identifying and investigating other individuals and entities that may be acting on
their behalf or at their direction and entities owned or controlled by them.
152. Since the death of Ali Abdullah Saleh, the resultant inherited wealth wi ll no
longer be within the scope of the Panel’s mandate unless: (a) those funds are made
available to Ahmed Ali Abdullah Saleh or any other individual acting on the latter ’s
behalf, including Khaled Ali Abdullah Saleh; or (b) Houthi fighters, acting on beh alf
of the three Houthi listed individuals, seize Saleh assets. The Panel has sent letters to
the Government of Yemen and Ahmed Ali Abdullah Saleh requesting official
documentation that certifies the death of Ali Abdullah Saleh in order to allow the
Committee to update the list. The Panel met with Ahmed Ali Abdullah Saleh in Abu
Dhabi on 27 December 2017. He indicated that he had not yet received confirmed
information as to where his father was buried, that members of his family are still
being held by the Houthis in Yemen and that members of his family have been
dispossessed by the Houthis. He complained that his listing was unjust as he has never
been and is not involved in any act that threatens the peace, security or stability of
Yemen.
153. The status of the estimated assets owned by listed individuals of the Saleh family and
individual entities acting on their behalf traced by the Panel are shown in table 4 below.

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Table 4
Estimated assets owned by the Saleh family that meet the assets freeze criteri aa
(Estimated in United States dollars)

Country Identified Frozen Status Remarks

France 11 350 000 To be confirmed 2 apartments owned by Ahmed Ali Abdullah Saleh
Malaysia 780 000 Frozen Owned by Ahmed Ali Abdullah Saleh (balance in 2016)
Netherlands To be confirmed Frozen Acting on behalf of Ahmed Ali Abdullah Saleh (asset is
in France)
Oman 25 818 000 Frozen Transferred by Ahmed Ali Abdullah Saleh from an
account in Yemen in 2012
Singapore 460 000 Securities owned by Ahmed Ali Abdullah Saleh
Switzerland 4 431 000 Frozen Owned by Ali Abdullah Saleh
United Arab 166 000 Frozen
Emirates Owned by Ahmed Ali Abdullah Saleh
United Arab 55 000 000 To be confirmed Owned by Ali Abdullah Saleh, and transferred in June
Emirates 2011
United Arab 51 720 000 To be confirmed Transferred by Trice Bloom Ltd. and Towkay Ltd. from
Emirates Bank of New York Mellon Corporation in 2014 from an
initial inward transfer of 71 493 448
United Arab 33 472 000 Transferred by PACT Trust, Ali Abdullah Saleh, (October
Emirates 2014)
United Arab 58 140 000 Transferred by Wildhorse Investments, Ali Abdullah
Emirates Saleh (October 2014)
United Arab 3 024 000 Transferred by Ansan Wikfs Investments Limited, a
Emirates company owned by Shaher Abdulhak
Total in the United Arab Emirates: 198 332 000
United Kingdom 3 700 000 Frozen Owned by Ahmed Ali Abdullah Saleh; Panel notified by
United Kingdom authorities to the Civil Forum for Asset
Recovery in 2017. a This asset is in a United Kingdom-
registered bank, but in an account in another European
country
United States of 90 000 000 b To be determined Transferred from or through banks in the United States to
America banks in the United Arab Emirates for the benefit of
Khaled Ali Abdullah Saleh between August 2013 and
December 2014

Subtotals 191 036 000 35 355 000

Grand total 226 391 000

a
Managed by Khaled Ali Abdullah Saleh.
b
Part of this amount is included in funds traced in the United Arab Emirates. Once details are confirmed, reconciliation of fu nds
can take place between United States and United Arab Emirates data.

154. The Panel is investigating assets seizures by the Houthis for their benefit. An
order was issued on 23 December 2017 to the Sana’a based Central Bank of Yemen
by “the committee for identification and seizure of assets owned by traitors ” to seize
all bank accounts owned by 1,223 individuals (see annex 56).
155. The Panel shared information on bank accounts and account transfers in relation
to listed individuals with five Member States and awaits their replies. This lack of
information on already frozen assets constrains the Panel from tracing further
financial assets. In 2017, no information on the freezing of assets was submitted to

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the Committee or Panel, while one notification of an intent to unfreeze was submitted
to the Committee.

Khaled Ali Abdullah Saleh

156. In its report dated 31 January 2017 172 the Panel identified Khaled Ali Abdullah
Saleh 173 as a financier acting on behalf and/or at the direction of his father, Ali
Abdullah Saleh, and his brother, Ahmed Ali Abdullah Saleh. The Panel is
investigating potential funds that could be made available by Khaled Ali Abdullah
Saleh for the benefit of listed individuals from transfers and investments equalling
$20.9 million made by Raydan Investments Limited in the United Arab Emirates (see
annex 57).
157. The Panel has received a bank statement related to a credit card
(4XXXXXXXXXXX3455) owned by Khaled Ali Abdullah Saleh, who has used two
passports from a Member State. The bank statement confirms that he travelled during
late 2016 and early 2017 to Munich, Germany, Budapest, Prague, Vienna and Zurich ,
Switzerland. The Panel noted that he sought the services of Keyana Management
Consulting in Munich. 174 The card was also used to support personal PayPal purchases
of potential weapons and specialized equipment prohibited by the targeted arms
embargo on Yemen on 26 December 2016 (http://www.nashq.com/) and 18 January
2017 (https://www.dmhq-shop.de/). He continues to manage the Saleh family assets
in such a way so as to circumvent the asset freeze and targeted arms embargo
sanctions measures.

VII. Travel ban

158. Pursuant to paragraph 15 of resolution 2140 (2014), the Panel continues to focus
on a range of monitoring and investigative activities in order to identify whether the
individuals designated by the Committee and Security Council have violated the
travel ban. No violations have been identified.

VIII. Acts that violate international humanitarian law and human

rights law
159. In paragraph 9 of resolution 2140 (2014), the Security Council called upon all
parties to comply with their obligations under international law, including applicable
international humanitarian law and human rights law. In paragraphs 17, 18 and 21 of
that resolution and in paragraph 19 of resolution 2216 (2015), the Council further
clarified the Panel’s responsibilities with regard to investigations of violations of
international humanitarian law and international human rights law and human rights
abuses, including investigation into obstructions to the delivery of humanitarian
assistance.

__________________
172
S/2017/81, sect. VI, paras. 42–44.
173
Born 2 August 1987.
174
See http://www.keyana-consulting.com/: the company, based in Munich, offers financial
investment services.

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A. Incidents attributed to the Saudi Arabia-led coalition

1. Air strikes
160. During the reporting period, the Panel investigated 10 air strikes 175 that led to at
least 157 fatalities and 135 injuries, including at least 85 children. The strikes also
destroyed five residential buildings, two civilian vessels, a market, a motel and a
Government of Yemen forces location (see table 5). Detailed case stu dies of the first
four incidents, which include assessments of compliance with international
humanitarian law, are contained in annex 58.

Table 5
Air strikes: 2017
Appendix in Civilian
annex 58 Date Location Incident and target Type of ordnance casualties

A 16 March Red Sea Migrant boat Small arms ammunition 42 dead

34 injured

B 25 Aug. Sana’a Residential building High explosive aircraft bomb 16 dead

17 injured

C 2 Sept. Hajjah Residential building High explosive aircraft bomb 3 dead

13 injured

D 1 Nov. Sa‘dah Night market High explosive aircraft bomb fitted with 31 dead
“Paveway” guidance unit 26 injured

E 9 June Sana’a Residential building Mark 82 or 84 high explosive aircraft 4 dead

bomb with “Paveway” guidance unit 8 injured

F 4 Aug. Sa‘dah Residential building Mark 84 high explosive aircraft bomb 9 dead
3 injured

G 23 Aug. Arhab Motel Mark 82 or 84 high explosive aircraft 33 dead

bomb with “Paveway” guidance unit 25 injured

H 16 Sept. Ma’rib Vehicle High explosive aircraft bomb or air-to- 12 dead

ground missile

I 10 Nov. Sa‘dah Residential building Mark 82 or 84 high explosive aircraft 4 dead

bomb with “Paveway” guidance unit 4 injured

J 14 Nov. Ta‘izz Government forces Mark 82 or 84 high explosive aircraft 3 dead

bomb with “Paveway” guidance unit 5 injured

161. In the 10 incidents investigated the Panel finds that:

(a) The use of precision-guided weapons is a strong indicator that the intended
targets were those affected by the air strikes;
(b) In all cases investigated, there was no evidence that the civilians in, or near this
infrastructure, who are prima facie immune from attack, had lost their civilian protection;
(c) Even if in some of the cases listed in table 5, the Saudi Arabia-led coalition
had targeted legitimate military objectives, the Panel finds that it is highly unlikely
__________________
175
These and other incidents referred to in this section were selected because the available evidence
met the standards set out in annex 1, appendix B.

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that the principles of international humanitarian law of proportionality and

precautions in attack were respected;
(d) The cumulative effect on civilians and the civilian infrastructure
demonstrates that even if precautionary measures were taken, they we re largely
inadequate and ineffective.
162. On the individual case studies, the Panel finds that:
(a) Except for incident A, the only military entity capable of carrying out these
airstrikes was the Saudi Arabia-led coalition. In incident A, it is highly unlikely that
an entity other than a member State in the Saudi Arabia -led coalition could have
carried out the attack;
(b) Except for incidents B and D, the Saudi Arabia-led coalition has not
acknowledged its involvement in any of the attacks, nor clarified, in the public
domain, the military objective it sought to achieve. In incidents B and D, the Panel is
unable to concur with the justifications provided by the Saudi Arabia -led coalition
(see annex 58); 176
(c) Measures taken by the Saudi Arabia-led coalition in its targeting process
to minimize child casualties, if any, remain largely ineffective, 177 especially when it
continues to target residential buildings.
163. The Panel requested information throughout 2017 from the Saudi Arabia -led
coalition in reference to the rationale that the coalition had applied in order to justify
the collateral damage to civilians and civilian infrastructure identified by the Panel.
The response received contained no verifiable information. In the case of the air
strikes listed in table 5, the Panel’s independent investigations could not find any
evidence of the presence of high value targets that would justify the collateral damage
at these target sites. In another incident, in which the Saudi Arabia -led coalition
admitted to killing a high value target in a strike on an alleged training camp, which
then turned out to be a school, the Joint Incident Assessment Team later denied that a
strike by the Saudi Arabia-led coalition had taken place (see annex 59).
164. The Panel also identified two cases (see table 6) where the Joint Incident
Assessment Team found that the Saudi Arabia-led coalition did not conduct strikes,
but the Panel’s independent investigations found clear evidence of air strikes. The
Panel thus concluded that the only entity capable of carrying out these two attacks
was the Saudi Arabia-led coalition (details are provided in annex 60).

Table 6
Findings of the Joint Incident Assessment Team and conclusions of the Panel
Date Incident Joint Incident Assessment Team Panel conclusions

9 Aug. 2016 Sana’a food Saudi Arabia-led coalition did not High explosive aircraft bomb used
factory carry out an air strike on the location Saudi Arabia-led coalition is
responsible

24 Sept. 2016 Ibb residential Saudi Arabia-led coalition did not Mark 82 high explosive aircraft bomb
complex carry out an air strike on the location with “Paveway” guidance unit used
Saudi Arabia-led coalition is
responsible

__________________
176
Statement of the official spokesman of the official Saudi Arabia -led coalition.
177
See S/2017/821, para. 200, for information on measures reportedly taken by the Saudi Arabia -led
coalition to reduce child casualties.

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165. Those individuals responsible for planning, authorizing and/or executing air
strikes that disproportionately affect civilians and civilian infrastructure are likely to
fall under the designation criteria contained in paragraphs 17 and 18 of resolution
2140 (2014). The Panel continues to investigate this issue.

2. Ground operations: detentions by the United Arab Emirates

166. In 2017, the Panel investigated 12 instances of individuals deprived of their
liberty being held in detention facilities at the United Arab Emirates base in Burayqah,
at Al Rayyan airport and in the port of Balhaf (see confidential annex 61 and
annex 62). The Panel finds that:
(a) The forces of the United Arab Emirates in Yemen detained individuals in
least three places of detention in Yemen, which were administered and supervised
exclusively by the United Arab Emirates;
(b) The Government of Yemen had no authority over individuals detained in
the bases administered by the United Arab Emirates;
(c) The forces of the United Arab Emirates engaged in, or supervised, joint
arrest operations with the Hadrami and Shabwani Elite Forces;
(d) The forces of the United Arab Emirates have engaged with Yemeni
security forces in regular detainee transfers;
(e) The forces of the United Arab Emirates were responsible for: (i) torture
(including beatings, electrocution, constrained suspension and imprisonment in a
metal cell (‘the cage’) in the sun); (ii) ill treatment; (iii) denial of timely medical
treatment; (iv) denial of due process rights; and (v) enforced disappearance of
detainees, in violation of international humanitarian law and international human
rights law. 178
167. The Panel estimates that the total number of detainees 179 in the custody of the
forces of the United Arab Emirates in Yemen, as at 1 November 2017, was over 200.
168. The Panel requested, but did not receive, either from the United Arab Emirates
or Yemen, the relevant legal authority under which the United Arab Emirates, as a
foreign force, was authorized to engage in the arrest and the deprivation of liberty of
individuals in Yemen. Instead, the representatives of the United Arab Emirates denied
that the country supervises or administers detention facilities in Yemen. 180
169. The widespread and systematic nature of the arbitrary arrest, deprivation of
liberty and enforced disappearance of individuals by the United Arab Emirates in
Yemen demonstrates a pattern of behaviour that is clearly inconsistent with the
country’s obligations under international humanitarian law and international human
rights law. At the same time, the continued denial of the role of the United Arab
Emirates in arbitrary arrests and detentions contributes to violations occurring with
impunity by both United Arab Emirates forces and its Yemeni proxies. This denial
offers them protection and the ability to operate without any foreseeable consequences.
170. For the United Arab Emirates, working with Government of Yemen security
forces provides plausible deniability for violations, 181 while also providing a veneer

__________________
178
A legal assessment of the situation is given in annex 62. Information provided by detainees was
verified through medical reports, testimonies of other detainees and their families and/or satellite
imagery, in accordance with Panel methodology.
179
The term detainees in this report refers to individuals deprived of their liberty, including
internees.
180
Letter from the United Arab Emirates to the Panel dated 8 November 2017.
181
Ibid.

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of legitimacy and authority for the arbitrary arrests and consequent detentions
undertaken on their behalf.
171. Both Governments refuse to conduct credible investigations into such abuse s or
to act against the perpetrators. The United Arab Emirates is in Yemen with the consent
of the legitimate Government, which has full authority to revoke, limit or to clarify
the boundaries of its consent, in order to further the compliance of the force s of the
United Arab Emirates with international humanitarian and international human rights
law. The Government of Yemen has also failed to assert effective command and
control over its own forces in this regard (see para. 54 above).
172. The Panel finds that those responsible for detention-related abuses in Yemen fall
within the designation criteria under paragraph 17 and/or paragraph 18 of resolution
2140 (2014).

B. Houthi and Saleh forces: violations associated with the deprivation

of liberty

173. The Panel investigated 16 cases of arbitrary arrest and the deprivation of liberty and
other violations of international humanitarian law and human rights norms committed by
Houthi-Saleh forces. Eleven individuals were identified who either committed or held
command responsibility for the violations. 182 These violations were committed by
officials of the Sana’a-based political security organization (3), the Sana’a-based
national security bureau (3) and other Houthi authorities (10). In the national security
bureau, Motlaq Amer al-Marrani (also known as Abu Emad), deputy head of the national
security bureau, was involved in all violations investigated by the Panel.
174. These violations by the members of the Sana’a-based political security
organization and the Sana’a-based national security bureau and by other Houthi
authorities involved: arbitrary arrest and deprivation of liberty; torture, (including of
a child); denial of timely medical assistance; prolonged enforced disappearances; lack
of due process; and three deaths in custody.
175. During the course of the past year, the Panel has observed that some individuals
within the detaining authorities are now profiting from detentions. The Panel
identified the release of one detainee after his family paid 1,000,000 rials ($4,000) to
officials of the Sana’a-based political security organization.
176. The Panel investigated the detention of individuals in the Dhammar Community
College, an informal place of detention. 183 One of the major reasons for the continued
detention of individuals in this prison is the inability of the leaders of the Houthi -
Saleh forces and the leaders of the “resistance” forces to agree on a local prisoner
exchange. Some detainees were informed that they would be released either: (a) upon
payment of a ransom; or (b) during an exchange. Any detention of civilians, solely as
leverage for future prisoner exchanges, is hostage taking, which is prohibited under
international humanitarian law. 184

Violations by Houthi authorities after 1 December 2017

177. The Panel initiated investigations into the arbitrary arrest, deprivation of liberty
and extrajudicial execution of affiliates of the General People ’s Congress, including
__________________
182
A legal assessment is provided in confidential annex 63.
183
The total number of detainees in the facility vary from 25 to 100.
184
Customary international humanitarian law rule 96 on hostage-taking (see https://ihl-
databases.icrc.org/customary-ihl/eng/docs/v2_rul_rule96). Under the terms of international
humanitarian law, civilians are to be detained only if they pose an imminent security threat and
then, only for as long as that threat is existent.

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incitement of violence against them. A significant deprivation of liberty took place on

2 December 2017 when 41 local journalists were arbitrarily detained. 185

C. Indiscriminate use of explosive ordnance against civilian

populated areas

178. The Panel investigated 10 incidents of the indiscriminate use of explosive

ordnance in densely populated areas such as Ta‘izz, which, together, resulted in
23 civilian deaths (see table 7). The Panel finds that in these cases, there was almost
certainly an indiscriminate use of explosive ordnance. Detailed case studies of three
of the incidents, which include assessments of compliance with international
humanitarian law, are provided in annex 64. The responsibility for all case studies,
except for case study C in table 7, is attributed to the Houthi-Saleh forces. 186

Table 7
Summary of the indiscriminate use of explosive ordnance in civilian populated
areas: 2017
Incident and Civilian Appendix to
Date Location target Type of explosive ordnance casualties annex 64

18 Jan. Nur, Ta‘izz Residential 120 mm high explosive 9 dead E

area mortar bomb
8 injured

21 May Jahmila, Ta‘izz Residential High explosive ordnance 2 dead F

area (to be confirmed)

21 May Thabat, Ta‘izz Residential High explosive ordnance 3 dead G

area (to be confirmed)
3 injured

21 May Humayrah, Ta‘izz Commercial High explosive ordnance 2 dead H

area (to be confirmed)
5 injured

29 May Nur, Ta‘izz Residential 120mm high explosive 1 dead A

area mortar bomb
7 injured

30 June Jumhuri, Ta‘izz Residential 106 mm recoilless rifle 1 dead I

area
9 injured

6 Sept. Rawdah, Ma’rib Residential 120mm high explosive 3 injured B

area mortar bomb

21 Sept. Sinah, Tai‘zz Residential Rocket-propelled 0 J

area grenade-7 variant

2 Nov. Onsowa, Ta‘izz Residential 120mm high explosive 5 dead D

area mortar bomb

11 Nov. Riyadh Civilian Short-range ballistic 0 C

airport missile

__________________
185
See https://rsf.org/en/news/houthis-holding-41-journalists-hostage-inside-yemeni-tv-station.
186
In the 2 November 2017 mortar attack, technical analys is demonstrates that the mortar base plate
was in an area under the control of Abu al-Abbas.

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179. The indiscriminate use of explosive ordnance against civilian locations in

Yemen and Saudi Arabia committed by the Houthi-Saleh forces falls within
paragraph 17 and/or paragraph 18 of resolution 2140 (2014). The Panel finds that the
continued use of such weapons could not happen unless sanctioned as a policy by the
high-level Houthi leadership, including Abdulmalik al-Houthi personally.

D. Violations by the Government of Yemen

180. The Panel investigated violations of international humanitarian law and

international human rights law relating to arbitrary arrest and detention, enforced
disappearance, torture, ill-treatment and denial of timely medical assistance for
21 individuals. These individuals were in the custody of or in locations controlled by
the Security Belt Forces in Aden and Lahij; the Special Forces in Ma ’rib; the Hadrami
and Shabwani Elite Forces; Major General Shallal Ali Shaye; 187 Brigadier General Ali
Abdullah Taher; 188 Ghassan al-Aqrabi; 189 Colonel Abu Mohammad Abdul Ghani
Shaalan; 190 and Imam al-Nubi. 191 Further information on such violations is provided
in annex 65 and confidential annex 66. Nine deaths also occurred in custody,
including that of three children.
181. Some officials maintained extrajudicial detention sites. In Aden, this included a
house under the control of Major General Shallal Ali Shaye in At -Tawahi, formerly
the Waddah nightclub. Bir Ahmed I was an extrajudicial detention site administered
by Ghassan al Aqrabi, who is affiliated with the Security Belt Forces and United Arab
Emirates forces. On 12 November 2017, the United Arab Emirates moved detainees
to Bir Ahmed II. On 13 November 2017, the Attorney General of Yemen received the
case files of the detainees. In early December 2017, following his intervention, some
detainees had family visits in Bir Ahmed II and some were released.
182. Also in November 2017, 133 detainees were reportedly transferred from
Al Rayyan airport to Mukalla Central Prison, 192 although there is inadequate
information to conclude that all detainees who were in Al Rayyan were transferred,
as some families still have not been able to gain access to their relatives who were
detained in Al Rayyan.

__________________
187
Director of General Security, Aden. The detention-related abuses investigated occurred at a house
in At-Tawahi under his control.
188
Former Security Director, Ma’rib (see https://yemensaeed.net/news.php?id=61163).
189
Supervisor of Bir Ahmed I and II.
190
Special Forces Commander, Ma’rib. Colonel Shallan was present and in control of his troops
when a child was killed.
191
Former Commander of Camp 20, Aden.
192
See http://www.chicagotribune.com/sns-bc-ml--yemen-prisoners-20171113-story.html.

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Figure XVII
Bir Ahmed I and Bir Ahmed II

E. Attacks inside hospitals

183. The Panel investigated two incidents, in which two seriously ill patients were
assassinated inside the Revolution Hospital on 24 March 2017 and 13 December 2017
(see confidential annex 67).
184. In Sana’a, following the death of Ali Abdullah Saleh, the Panel is investigating
incidents in which injured persons were killed inside hospitals. Wounded, sick and
out of action personnel are protected under international humanitarian law. 193

F. Recruitment and use of children in armed conflict

185. The Panel investigated individuals and networks operating in Yemen that engage
in child recruitment. The Panel has identified two individuals who recruited a total of
five children on behalf of Houthi forces (see annex 68 and confidential annex 69).
The Panel finds, based on their analysis over the past year, that these cases are
representative of a much larger problem.

__________________
193
See common article 3 to the Geneva Conventions of 1949 and article 7(1) of the Protocol
Additional to the Geneva Conventions relating to the Protection of Victims of Non -International
Armed Conflicts (Protocol II).

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186. The Panel finds that the following also contributes to the increase in the
recruitment of children:
(a) The non-payment of salaries results in children being compelled to search
for economic alternatives on behalf of their families: Houthi -Saleh forces paid newly
recruited children approximately 15,000 to 20,000 rials per month ($60 to $80);
(b) The disruption to education means that children often have little to do, thus
making them vulnerable to street level recruitment;
(c) As families continue to live in areas controlled by the Houthi-Saleh forces,
they are afraid to speak out against such recruitment, thus allowing it to conti nue
unchallenged;
(d) For parents with financial means, the airport closure and visa restrictions
mean that they cannot send or take their children out of the country for their own
protection.

IX. Obstruction of humanitarian assistance

187. Pursuant to paragraph 19 of resolution 2216 (2015), the Panel continues to
investigate the obstruction of the delivery of humanitarian assistance to Yemen or
access to, or distribution of, humanitarian assistance in Yemen.

A. Obstruction of deliveries of humanitarian assistance

188. The Saudi Arabia-led coalition continued to obstruct the entry of humanitarian
and commercial goods to Yemen by: (a) continuing the blockade on the Sana ’a airport
to commercial flights (see annex 70); (b) imposing gradual restrictions on civilian
items entering Yemen through the Red Sea ports (see confidential annex 71) and
(c) through severe restrictions on the imports of commercial and humanitarian goods
from 6 to 23 November 2017. During the latter period, over 750,600 tons of
commercial and humanitarian goods were diverted from Yemen or their entry to the
country delayed. 194
189. The imposition of more access restrictions on 6 November 2017 was another
attempt by the Saudi Arabia-led coalition to use paragraph 14 of resolution 2216
(2015) as justification for obstructing entry of commodities into Yemen that are
essentially civilian in nature Obstructing the entry into Yemen o f many of the
commodities listed in confidential annex 71 is contrary to the spirit of resolution 2216
(2015).
190. The blockade is essentially using the threat of starvation as a bargaining tool
and an instrument of war. The Houthi forces are also using the population as a pawn
when they escalate their strikes against Saudi Arabia, knowing full well the brunt of
reprisals will be felt by the civilian population. The Houthis are relying on public
condemnation of Saudi Arabia’s reprisals to offset any liability on their part for those
actions.
191. The continued non-reporting in 2017 by Member States of inspections
undertaken in their territory means that they are in non-compliance with paragraph 17
of resolution 2216 (2015). This undermines the monitoring responsibilities of the
Committee as envisaged in paragraph 17 of resolution 2216 (2015) and undermines

__________________
194
Information from UNVIM and LogCluster data.

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the safeguards placed to ensure that the sanctions regime is not misused to achieve
unilateral objectives.

B. Obstruction to the distribution of humanitarian assistance

192. In 2017, Houthi-Saleh forces continued to obstruct the distribution of

humanitarian assistance and prevented humanitarian access. 195 The Panel investigated
obstructions, which included: (a) aid diversion; (b) delays or refusals that affect
timely distribution; (c) arrests, detentions, intimidation and torture of humanitarian
staff and confiscation of equipment; (d) interference in the selection of beneficiaries,
areas of operation and implementing partners; (e) declaration of areas as military
zones, making them inaccessible to humanitarians; (f) extortion and de mands for
payment under threats of violence; (g) obstruction of the delivery of cholera response
material; (h) issues relating to customs clearance; and (i) delays in clearing the
importation of medicine from Sana’a International Airport. These obstacles are
compounded by the non-payment of public sector salaries and visa restrictions for
humanitarian workers.
193. The Panel also investigated obstructions to humanitarian access by the executive
unit (in Ta‘izz, Hajjah and Hudaydah), the Sana’a-based ministries of education and
health, and the Sana’a-based national security bureau. Some of these actors are
militarizing the distribution of aid. The Panel finds that Motlaq Amer al -Marrani (also
known as Abu Emad), the deputy head of the Sana’a-based national security bureau
was also responsible for the arbitrary arrest, detention and ill treatment of
humanitarian workers and other authorities working on humanitarian assistance. He
has also unduly used his authority and influence over humanitarian access as a
leverage to generate profit.
194. At the request of humanitarian stakeholders, the confidential information and
analysis relating to this section is provided in confidential annex 72.

X. Recommendations
195. The Panel recommends that the Security Council:
(a) Consider including in its resolution or presidential statement a call on the
member States of the Saudi Arabia-led coalition not to misuse resolution 2216 (2015)
as a justification to obstruct the delivery of essential goods and humanitarian aid by
air or sea;
(b) As a confidence-building measure, consider authorizing the deployment
of a neutral naval vessel to the sea approaches and entrance of Hudaydah port, under
the auspices of UNVIM, thus increasing discharge rates and ensuring a neutral
inspection and monitoring presence during commercial vessel discharges in Houthi -
controlled territory;
(c) Consider including in its resolution language specifying that the
components used for the manufacture of military equipment may fall within the scope
of the targeted arms embargo;
(d) Consider commissioning an ad hoc report from the Committee, with
assistance from its Panel of Experts, and working with other relevant United Nations
bodies, including the Office for Disarmament Affairs, and in consultation with
international and regional organizations and entities, to examine the use and impact
__________________
195
United Nations, international and national non-governmental organization sources.

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of commercially available unmanned aerial vehicles in conflict zones for military

purposes, and to make recommendations on appropriate counter-measures to their
transfer and use.
196. The Panel recommends that the Committee:
(a) Consider engaging with the International Maritime Organization (IMO), 196
with a view to recommending that it liaise with the industry shipping group
responsible for the publication Best Management Practices for Protection against
Somalia Based Piracy (BMP4) to ensure that the protection measures set out in the
publication are still appropriate for addressing the new threats that have em erged in
the Red Sea area;
(b) Consider engaging with the Combined Maritime Forces to encourage them
to cooperate with the Panel in accordance with paragraph 10 of resolution 2117 (2013)
and paragraph 8 of resolution 2342 (2017), and to respond to Panel’s requests for
information;
(c) Consider reminding Member Sates of their obligation under paragraph 11
of resolution 2140 (2014) to freeze without delay all funds, other financial assets and
economic resources on their territories that are owned or controlled, directly or
indirectly, by individuals or entities acting on behalf or at their direction of listed
individuals, or by entities owned or controlled by them, in particular the United Arab
Emirates with regard to Khaled Ali Abdullah Saleh and the assets he manages that are
identified herein and in the report of the Committee dated 31 January 2017
(S/2017/81);
(d) Consider engaging with the United Nations Educational, Scientific and
Cultural Organization, encouraging it to issue a communiqué informing international
auctioneers and museums that the export and sale of Yemeni artefacts is illegal and
that measures should be taken to ensure that funding raised from transactions relating
to Yemen’s cultural heritage will not be used to finance armed groups;
(e) Consider encouraging the Government of Yemen to establish mechanisms
with international financial institutions and the Saudi Arabia -led coalition to allow
those Yemeni banks with effective anti-money-laundering measures to transfer hard
currency outside of Yemen in order to raise the letters of credits necessary to support
imports;
(f) Consider engaging with the Office of the Secretary-General to examine
the development and institution, within UNVIM, of a complaints mechanism for
shippers and freight forwarders, to be made available through the UNVIM website.

__________________
196
See http://www.imo.org.

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Annex 1: Methodology

1. The Panel used satellite imagery of areas of Yemen procured by the United Nations from private providers
to support its investigations. It also used commercial databases recording maritime and aviation data and mobile
phone records. Public statements by officials through their official media channels were accepted as factual unless
contrary facts were established. While the Panel strived to be as transparent as possible, in situations in which
identifying sources would have exposed them or others to unacceptable personal security risks, the Panel decided
not to include identifying information in the present report and instead placed the relevant evidence in United
Nations archives.

2. The Panel reviewed social media, but no information gathered was used as evidence unless it could be
corroborated using multiple independent or technical sources, including eyewitnesses, to appropriately meet the
highest achievable standard of proof.

3. The spelling of toponyms within Yemen often depends on the ethnicity of the source or the quality of
transliteration. The Panel has adopted a consistent approach in the present report.

4. The Panel has placed importance on the rule of consensus among the Panel members and agreed that, if
differences and/or reservations arise during the development of the report, it would only adopt the text, conclusions
and recommendations by a majority of four out of the five members. In the event of a recommendation for
designation of an individual or a group, such recommendation would be done on the basis of unanimity.

5. The Panel has offered the opportunity to reply to Member States, entities and individuals involved in the
majority of incidents that are covered in this report. Their response has been taken into consideration in the Panel’s
findings. The methodology for this is provided in appendix A.

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Appendix A to Annex 1: ‘The opportunity to reply’ methodology used by the Panel

1. Although sanctions are meant to be preventative not punitive, it should be recognized that the mere naming
of an individual or entity1 in a Panel’s report, could have adverse effects on the individual. As such, where possible,
individuals concerned should be provided with an opportunity to provide their account of events and to provide
concrete and specific information/material in support of their narrative. Through this interaction, the individual is
given the opportunity to demonstrate that their alleged conduct does not fall within the relevant listing criteria. This
is called the ‘opportunity to reply’.

2. The Panel’s methodology on the opportunity to reply is as follows:

(a) Providing an individual with an ‘opportunity to reply’ should be the norm;

(b) The Panel may decide not to offer an opportunity of reply if there is credible evidence that it would unduly
prejudice its investigations, including if it would:

(i) Result in the individual moving assets if they get warning of a possible recommendation for designation;

(ii) Restrict further access of the Panel to vital sources;

(iii) Endanger Panel sources or Panel members;

(iv) Adversely and gravely impact humanitarian access for humanitarian actors in the field; or

(v) For any other reason that can be clearly demonstrated as reasonable and justifiable in the prevailing
circumstances.

3. If the circumstances set forth in 2 (b) do not apply, then the Panel should be able to provide an individual
an opportunity to reply.

4. The individual should be able to communicate directly with the Panel to convey their personal
determination as to the level and nature of their interaction with the Panel.

5. Interactions between the Panel and the individual should be direct, unless in exceptional circumstances.

6. In no circumstances can third parties, without the knowledge of the individual, determine for the individual
its level of interaction with the Panel.

7. The individual, on the other hand, in making their determination of the level and nature of interaction with
the Panel, may consult third parties or allow third parties (for example, legal representative or his government) to
communicate on his/her behalf on subsequent interactions with the Panel.

__________________
1
Hereinafter just the term individual will be used to reflect both.

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Appendix B to Annex 1: Violations relating to IHL, IHRL, and acts that constitute human rights abuses
investigative methodology

1. The Panel adopted the following stringent methodology to ensure that its investigations met the highest
possible evidentiary standards, despite it being prevented from visiting places in Yemen other than Aden. In doing
so it has paid particular attention to the “Informal Working Group on General Issues of Sanctions Reports”,
S/2006/997, on best practices and methods, including paragraphs 21, 22 and 23, as requested by paragraph 11 of
resolution 2342 (2017).

2. The Panel’s methodology in relation to its investigations concerning IHL, IHRL and human rights abuses
is set out as below:

(a) All Panel investigations are initiated based on verifiable information being made available to the Panel,
either directly from sources or from media reports.

(b) In carrying out its investigations on the use of explosive ordnance, the Panel relies on at least three or
more of the following sources of information:

(i) At least two eye-witnesses or victims;

(ii) At least one individual or organization (either local or international) that has also independently
investigated the incident;

(iii) If there are casualties associated with the incident, and if the casualties are less than ten in
number, the Panel obtains copies of death certificates and medical certificates. In incidents relating to
mass casualties, the Panel relies on published information from the United Nations and other
organizations;

(iv) Technical evidence, which includes imagery of explosive events such as the impact damage, blast
effects, and recovered fragmentation. In all cases, the Panel collects imagery from at least two different
and unrelated sources. In the rare cases where the Panel has had to rely on open source imagery, the Panel
verifies that imagery by referring it to eyewitnesses or by checking for pixilation distortion;

a. In relation to air strikes, the Panel often identifies the responsible party through crater analysis
or by the identification of components from imagery of fragmentation; and

b. The Panel also analyses imagery of the ground splatter pattern at the point of impact from
mortar, artillery, or free flight rocket fire to identify the direction from which the incoming
ordnance originated. This is one indicator to assist in the identification of the perpetrator for
ground fire when combined with other source information.

(v) The utilisation of open source or purchased satellite imagery wherever possible, to identify the
exact location of an incident, and to support analysis of the type and extent of destruction. Such imagery
may also assist in the confirmation of timelines of the incident;

(vi) Access to investigation reports and other documentation of local and international organizations
that have independently investigated the incident;

(vii) Other documentation that supports the narrative of sources, for example, factory manuals that
may prove that the said factory is technically incapable of producing weapons of the type it is alleged to
have produced;

(viii) In rare instances where the Panel has doubt as to the veracity of available facts from other sources,
local sources are relied on to collect specific and verifiable information from the ground. (For example, if
the Panel wished to confirm the presence of an armed group in a particular area);

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(ix) Statements issued by or on behalf of a party to the conflict responsible for the incident; and/or

(x) Open source information to identify other collaborative or contradictory information regarding
the Panel’s findings.

(c) In carrying out its investigations on deprivation of liberty and associated violations the Panel relies on the
following sources of information:

(i) The victims, where they are able and willing to speak to the Panel, and where medical and
security conditions are conducive to such an interview;

(ii) The relatives of victims and others who had access to the victims while in custody. This is
particularly relevant in instances where the victim dies in custody;

(iii) Interviews with at least one individual or organization (either local or international) that has also
independently investigated the incident;

(iv) Medical documentation and, where applicable, death certificates;

(v) Documentation issued by prison authorities;

(vi) Interviews with medical personnel who treated the victim, wherever possible;

(vii) Investigation and other documentation from local and international organizations that have
independently investigated the incident. The Panel may also seek access to court documents if the detainee
is on trial or other documentation that proves or disproves the narrative of the victim;

(viii) Where relevant, the Panel uses local sources to collect specific and verifiable information from
the ground, for example, medical certificates;

(ix) Statements issued by the party to the conflict responsible for the incident; and/or

(xx) Open source information to identify other collaborative or contradictory information regarding
the Panel’s findings.

(d) In carrying out its investigations on other violations, including forced displacement and threats against
medical workers, the Panel relies on information that includes:

(i) Interviews with victims, eyewitnesses, and direct reports where they are able and willing to speak
to the Panel, and where conditions are conducive to such an interview;

(ii) Interviews with at least one individual or organization (either local or international) that has also
independently investigated the incident;

(iii) Documentation relevant to verify information obtained;

(iv) Statements issued by the party to the conflict responsible for the incident; and/or

(v) Open source information to identify other collaborative or contradictory information regarding the
Panel’s findings.

(e) The standard of proof is met when the Panel has reasonable grounds to believe that the incidents had
occurred as described and, based on multiple corroboratory sources, that the responsibility for the incident lies with
the identified perpetrator. The standard of proof is “beyond a reasonable doubt”.

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(f) Upon completion of its investigation, wherever possible, the Panel provides those responsible with an
opportunity to respond to the Panel’s findings in so far as it relates to the attribution of responsibility. This is
undertaken in accordance with the Panel’s standard methodology on the opportunity to reply. Generally, the Panel
would provide detailed information in any opportunity to respond, including geo-locations. However, detailed
information on incidents are not provided when there is a credible threat that it would threaten Panel sources, for
example, in violations related to deprivation of liberty, violations associated with ground strikes on a civilian home,
or in violations associated with children.

(g) If a party does not provide the Panel with the information requested, the Panel will consider whether this
is of sufficient gravity to be considered as non-compliance with paragraph 8 of resolution 2342 (2017), and thus
consideration for reporting to the Committee.

3. The Panel will not include information in its reports that may identify or endanger its sources. Where it is
necessary to bring such information to the attention of the Council or the Committee, the Panel may include more
source information in confidential annexes.

4. The Panel will not divulge any information that may lead to the identification of victims, witnesses, and
other particularly vulnerable Panel sources, except: 1) with the specific permission of the sources; and 2) where the
Panel is, based on its own assessment, certain that these individuals would not suffer any danger as a result. The
Panel stands ready to provide the Council or the Committee, on request, with any additional imagery and
documentation to supports the Panel’s findings beyond that included in its report. Appropriate precautions will be
taken though to protect the anonymity of its sources.

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Annex 2: UN Geographic Information Systems (GIS) map (place name identification)

Figure 2.1
UN GIS place names Yemen

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Annex 3: Summary of Panel correspondence (2017)

Table 3.1
Correspondence with Member States 1

Number of letters Number of unanswered

Member State sent by the Panel letters by Member State Remarks

Australia 3 3
Bulgaria 1
Canada 1
China 7
Djibouti 2
Egypt 2
Finland 1
France 4 4
Germany 3
India 3
Islamic Republic of Iran 9 5
Italy 4
Japan 1
Marshall Islands 1 1
Netherlands 1
Oman 5 1
Philippines 1
Republic of Korea 2
Russian Federation 5 3
Kingdom of Saudi Arabia 30 7
Serbia 2 2
Singapore 3
Slovakia 1
Sweden 1
Switzerland 9
Togo 1
Turkey 2
Ukraine 2
United Arab Emirates 22 4
United Kingdom of Great 4 2
Britain and Northern
Ireland
United States of America 10
Yemen 26 11 .

Total 169 43 25% unanswered

__________________
1
This includes letters received by the Panel in Arabic on 2 January 2018, which had been outstanding for some months.
This has not allowed the Panel time to fully analyze and verify all the information provided; hence some of it has not
been included in the annexes to this report. The information will be used in ongoing investigations and reported on
accordingly at the appropriate time.

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Table 3.2
Correspondence with Sana’a based authorities

Number of
Number of letters unanswered letters
Entity sent by the Panel by entity Remarks

Sana’a based ministry of 3 2

foreign affairs

Total 3 2

Table 3.3
Correspondence with offices

Number of
Number of letters unanswered letters
Office sent by the Panel by entity Remarks
Taipei Economic and Cultural 3
Office in New York

Total 3 0

Table 3.4
Correspondence with international and regional organizations

Number of
Number of letters unanswered letters
Organization sent by the Panel by entity Remarks

Combined Maritime Force 6 6

IFC (World Bank Group) 1
Total 7 6

Table 3.5
Correspondence with commercial companies

Number of
Number of letters unanswered letters
Company sent by the Panel by entity Remarks

Aerovironment (USA) 1 1 Holding email only

Daewoo (Republic of Korea) 1 1

Dileton Maritime (Greece) 1
Garmin (USA) 2 1
MSA Incorporated (USA) 1
PayPal (USA) 1 1
Phillips (Netherlands) 1 1
Prime Tanker Management 1
(Greece)
Winterbotham (Bahamas) 1 1
Total 10 6

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Table 3.6
Correspondence with Individuals

Number of
Number of letters unanswered letters
Individual sent by the Panel by entity Remarks

Ahmed Ali Abdullah Saleh 1

(Yei.005)

Total 1

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Annex 4: Governors loyal to the legitimate Government

Table 4.1
Governors loyal to the legitimate Government

Se Governorate /
r Name municipality Remarks / Appointed
1 Aden Resigned November 2017
(Abd al-Aziz al-Maflakhi, 1 resigned 16
November 2017)
2 Major General Abu Bakr Hussayn Salem Abyan Previous Axis Commander in
Abyan
Resigned 22

3 Major General Abd al-Ghani Hafed’llah Amanat Al Asimah Minister of State

Jamil
4 Abd al-Rahman Khazm al-Sa’wr Amran July 2017
5 Saleh Ahmed Ali al-Rasas Bayda’
(Replaced Nayef Salih Salem al-Qaysi
(QDi.402) on 23 July 2017)
6 Major General Ali Muqbil Saleh 2 Dali’ 24 December 2017
(Replaced Dr Fadhi al-Ja’di)
7 Major General Ali al-Qawsi Dhamar
8 Brigadier General Faraj Salami al- Hadramawt Commander, 2 nd Military
Bahasani District. June 2017
9 Major General Abd al-Karim al-Sanini Hajjah
10 Dr. al-Hasan Ali Taher Hudaydah
11 Major General Abd al-Wahab al-Wai’li Ibb
12 Amin al-‘Akimi Jawf
13 Brigadier General Ahmed Abdullah al- Lahij 24 December 2017
Turky 3
(Replaced Dr Naser al-Khubaji)
14 Rajah Said Ba’Krait Mahrah 28 November 2017
(Replaced Mohammed Abdallah Kudah)
15 Salah Sami’ah Mahwit
16 Major General Sultan Ali Mabkhout al- Ma’rib
Aradha
17 Mohammed al-Hawri Raymah
18 Hadi Tarshan Abdullah Tarshan Sa’dah

__________________
1
President Hadi issued a statement refusing to accept his resignation. Governor Maflakhi remains outside Yemen. See
http://www.worldbulletin.net/headlines/196024/yemeni -president-rejects-aden-governors-resignation.
2
Major General Saleh also remains commander of the 33 rd Armored Brigade in Dali’.
3
Brigadier General Ahmed Abdullah al-Turky also remains commander of the 17 th Infantry Brigade.

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Se Governorate /
r Name municipality Remarks / Appointed
19 Major General Abd al-Qawi Ahmed ‘Ubad Sana’a
al-Sharif
20 Ali Bin Rashid al-Harthi Shabwah June 2017
21 Ahmed Abdullah Ali al-Soqotri Socotra June 2017
22 Ameen Ahmed Mahmoud Ta’izz 24 December 2017
(Replaces Ali al-Mamari) 4

__________________
4
Resigned in late September 2017 over unpaid salaries in his governorate, he rescinded his resignation, and remained in
office until replaced. http://en.nthnews.net/2017/09/28/taiz-governor-appointed-by-hadi-announced-his-resignation-
because-of-disagreement-over-salaries/.

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Annex 5: Network of Nayef Salih Salem al-Qaysi1

Table 5.1
Network of Nayef Salih Salem al-Qaysi 2

Ser Name Position Location

1 Abdo Rabbo al-Qaysi Office manager Aden

2 Ahmed Saleh al-Aysi
3 Jalal Muqatah Aden
4 Mohammed Saleh al-Ghunaimy Local resistance Diy Na’am Front
leader
5 Mohammed Abd al-Qawi Musa al-Homaiqani Ta’izz front
liaison

__________________
1
https://www.treasury.gov/press-center/press-releases/Pages/jl0462.aspx.
2
https://www.treasury.gov/press-center/press-releases/Pages/jl0462.aspx.

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Annex 6: Leadership and structure of provincial security and Security Belt forces1

Table 6.1
Leadership and structure of provincial security and Security Belt f orces

Serial Name Position Location Remarks

1 Colonel Khader al-Nub 2

Director of General Abyan
Security

2 Colonel Abd al-Latif al- Commander Abyan

Sayed 3 Security Belt Forces

3 Lieutenant Colonel Deputy Commander Abyan

Mohammed al-Oban Security Belt Forces

5 Major General Shallal Ali Director of General Aden

Shaye Security

6 Brigadier General Wadha Commander Aden

Omar Abdulaziz 4 Security Belt and
3 rd Support Brigade
7 Brigadier General Munir Commander Abyan/Aden
Mahmoud Ahmed al- 1 st Support Brigade 6
Mashali 5 Emergency Forces

8 Colonel Nabil al-Mashwashi Commander Aden

2 nd Support Brigade

9 Colonel Hader al-Shukhaty Commander Lahij

4 th Support Brigade

10 Colonel Mukhtar al-Nubi Commander Radfan/Lahij

5 th Support Brigade

__________________
1
Note. Directors of General Security fall under the umbrella of the Ministry of Interior. Security Belt Forces are now
organized under each General Security Directorate, as per confidential security officials.
2
Appointed 14 November 2017, replacing Brigadier General Abdullah al -Fadhli.
3Former head of Abyan popular Committees In south Yemen, a militia leader is president's top ally. The Daily Mail,
24 March 2015. http://www.dailymail.co.uk/wires/ap/article-3009836/In-south-Yemen-militia-leader-presidents-ally.html.
4
Replaced Nasser al-Shukhaty.
5
Also known as Abu al-Yamama al-Yafa’i.
6
Security Belt Forces component since 17 February 2017.

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Annex 7: Southern Transitional Council (STC) local office directors1

Table 7.1
Southern Transitional Council local office directors

Ser Name Position Office Location

1 Aydarous Muhammed Saleh Haqis Head of Office Abyan

2 Dr. Abd al-Nasser Ahmed Ali al-Waly Head of Office Aden
3 Abdullah Mahdi Saeed Ahmed Head of Office Dali’
4 Nassib bin Ahmed bin Nassib al-‘Omry Head of Office Hadramawt
5 Faysal Ahmed Hamash Saleh Head of Office Lahij
6 Salem Ali Saeed al-Qamiry Head of Office Mahrah
7 Ali Muhsin Rawis al-Suleimany Head of Office Shabwah
8 Nazim Mubarak Ali bin Qablan Head of Office Soqotra

__________________
1 The names were announced on 30 November 2017, see http://adengad.net/news/290304/.

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Annex 8: Houthi Governors

Table 8.1
Houthi appointed governors 1

Governorate /
Ser Name municipality Remarks

1 Aden
2 Abyan
3 Amanat Al Asimah
4 Faysal Ja’man Amran
5 Bayda’
6 Dali’
7 Fadhil al-Sharqi Dhamar
8 Hadramawt
9 Nayef Abu Kharfashah Hajjah
10 Abd al-Khaliq Badr al-Din al-Houthi Hudaydah
11 Abd al-Wahid Saleh Ibb
12 Sam al-Malahi Jawf
13 Lahij
14 Mahrah
15 Mahwit
16 Ma’rib
17 Murad al-Sharef Raymah
18 Sa’dah
19 Ahmed Qatinah Sana’a
20 Shabwah
21 Socotra
22 Mansour al-Lakoumi Ta’izz

__________________
1
The table includes all governorates of Aden to illustrate those to which the Houthis ’ have appointed governors.

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Annex 9: The killing of Khaled Ahmed al-Radhi

I. Introduction

1. The Panel is investigating whether the killing of Khalid Ahmed al-Radhi by the Houthis, on
26 August 2017 1 was a targeted killing, part of a larger strategy or as a consequence of confusion. Khaled
Ahmed al-Radhi served as a deputy of the GPC foreign policy committee, was a Colonel in the Armed
Forces and the owner of Vulcan Group, the most important supplier of material for the Yemeni Ministry of
Defence during Ali Abdullah Saleh (YEi.003)’s presidency. 2

2. Khaled al-Radhi’s family extends from tribal elements in Amran, namely the Al Kharef tribe of
the Hashid Confederation, which was led by Bayt al-Ahmar until 2014 when Houthis took over Amran
governorate. 3 His family, of Zaydi background, included various pro -Houthi members as well as officials
within the GPC and pro-Saleh armed forces. His cousin, Ambassador Abdullah Ali al-Radhi, a former
Yemeni envoy to Tehran 4 and London 5 during Ali Abdullah Saleh (YEi.003)’s presidency, is well known
for his links to the regime in Tehran. The family’s status survived the six wars between Ali Abdullah Saleh
(YEi.003)’s’s regime and Houthis, 6 and the 2011 uprising.

II. Tensions within the Houthi-Saleh alliance

3. As result of distrust, miscalculation and obstructed lines of communication between former

president Ali Abdullah Saleh (YEi.003) and the Houthi leadership, pre-existing tensions within the alliance
of necessity deepened in 2017. A speech by Abdulmalik al-Houthi (YEi.004) on 19 August 2017 7 brought
to light the level of looming tension. Abdulmalik al-Houthi (YEi.004) referred to rising threats by a ‘Fifth
Column’, used by his supporters to accuse GPC elements protesting unpaid salaries. The speech served to
pave the ground for much graver accusations of treason against Ali Abdullah Saleh (YE i.003) and his
party. 8

4. Ali Abdullah Saleh (YEi.003) responded on 20 August 9 2017 with a speech of his own, setting the
stage for the rally in Sana’a on 24 August 2017 to commemorate the 35 th anniversary of the establishment
of the GPC. 10 By this time the Houthis had begun to mobilise militia elements around the capital limits, 11
calling the deployment a security operation, which was not meant to intimidate the GPC. By Saturday 26
August 2016, the Houthis had established a number of checkpoints around Sana ’a, some coincidently, very
near residential sites of Ali Abdullah Saleh (YEi.003)’s family and party members.

III. The killing of Khaled Ahmed al-Radhi

5. Check points not only emerged in order to constrain the movement of Ali Abdullah Saleh
(YEi.003) and his loyalists, but as was the case on Saturday 26 August 2017, they aimed to instigate
confrontations. Such was the case when Salah Ali Abdullah Saleh and his armed escort were stopped at a
check point in the Hadda District, leading to an altercation and clashes when Salah refused to exit his
__________________
1
https://www.thenational.ae/world/mena/pro-saleh-colonel-killed-in-fighting-with-houthi-allies-in-sanaa-1.623118.
2
http://vulcanyemen.com/. The Panel has evidence indicating his involvement in previous contracts.
3
Houthi militia took control of Shaykh Abdullah bin Hussein al-Ahmar’s (d. Dec. 2007) complex in al-Khamr, Amran
and demolished all residential quarters on 2 February 2014. See https://yemen-press.com/news26876.html.
4
https://worldpeace365.wordpress.com/2017/11/08/iran-in-yemen-tehrans-shadow-looms-large-but-footprint-is-small/;
https://wikileaks.org/plusd/cables/09SANAA149_a.html ;https://wikileaks.org/plusd/cables/09SANAA1662_a.html .
5
https://www.reuters.com/article/us-yemen-saleh/yemens-saleh-stable-recovering-ambassador-
idUSTRE75A1HH20110611.
6
https://www.rand.org/content/dam/rand/pubs/monographs/2010/RAND_MG962.pdf .
7 http://www.aljadeedpress.net/archives/24938.
8
https://www.thenational.ae/world/houthi-rebels-may-soon-oust-saleh-yemen-vice-president-says-1.628087.
9 https://www.youtube.com/watch?v=QZHPiVj3ts4andfeature=youtu.be.
10
http://www.aljazeera.com/news/2017/08/yemen-saleh-stages-mass-rally-houthi-rift-170824183626444.html.
11
https://www.youtube.com/watch?v=SArtbJ_AuA0andfeature=youtu.be .

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vehicle, and his armed escorts scuffled with Houthi elements. Khaled Ahmed al -Radhi responded by
deploying armed tribal elements, in attempts to de-escalate the confrontation and mediate Salah’s right of
way. The Houthis shot Al-Radhi dead upon exiting his own vehicle.

6. The immediate response to al-Radhi’s killing was the suggestion it was a targeted assassination,
as one shot to the head was identified as cause of death, with a second would in the torso area. Houthi
gunmen were identified as the culprits, and a sniper shot to the head was confirmed to the Panel.

7. A targeted assassination was generally quickly dismissed as Houthi elements would require an
order for such a thing. Furthermore, SRC president Mohammed Ali al-Houthi and SPC president Saleh al-
Samad visited al-Radhi’s family home on 29 August 2017 to clear all doubt. There are no confirmed reports
on the traditional tribal customs arranged to repair relations between the family and Houthis. The Panel
maintains the killing of Khaled al-Radhi was an accidental consequence of confusion at a time of
heightened tensions.

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CONFIDENTIAL ANNEX NOT FOR PUBLIC DISSEMINATION

Annex 10: Ali Abdullah Saleh (YEi.003) sons

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CONFIDENTIAL ANNEX NOT FOR PUBLIC DISSEMINATION

Annex 11: Ali Abdullah Saleh (YEi.003) nephews

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CONFIDENTIAL ANNEX NOT FOR PUBLIC DISSEMINATION

Annex 12: Ali Abdullah Saleh (YEi.003) daughters

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Annex 13: GPC members killed or detained by the Houthi (December 2017)

Table 13.1
Officials of the General People’s Congress (GPC) Party1

Ser Name Title Status

1 Ali Abdullah Saleh President, GPC Deceased (4 December 2017)

(YEi.003)
2 Sadeq Amin Abu Ras Vice President, GPC
3 Aref Awadh al-Zuqa Secretary General Deceased
4 Yasser Ahmed al-Awadhi Assistant Secretary General, In Sana’a
Regulatory Affairs

5 Dr. Abu Bakr al-Qirbi Assistant Secretary General, Outside Yemen

Cultural and Information
Affairs
6 Fayqa al-Saeed Assistant Secretary General, In Sana’a
Civil Society Organizations
7 Yahya al-Ra’i Assistant Secretary General/ In Sana’a
Speaker of Parliament

__________________
1
The Panel has been unable to confirm if Sana’a based GPC members are under detention.

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CONFIDENTIAL ANNEX NOT FOR PUBLIC DISSEMINATION

Annex 14: Ali Abdullah Saleh (YEi.003) wives

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Annex 15: Mahrah Governorate Officials

Table 15.1
Mahrah Governorate Officials

Location of
Name Position Origin Remarks

1 Rajah Saeed Ba’Krait 1

Governor Hawf
2 Salim Mohammed al-Aboodi Assistant Governor

3 Ahmed “Qahtan” Muhawi al-Mujibi Chief of Security

4 Mughareb bin Burqtaimi Nishtun Port Kudah Serves as tribal

Director affairs advisor

5 Ali Salem al-Kharizy Assistant Governor Miz’yunah

for Desert Region
6 Abdullah Issa bin Afrar Sultan STC member

__________________
1
Was appointed on 18 November 2017 by President Hadi, replacing Mohammed Abdullah Kudah.

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Annex 16: AQAP affiliates in Mahrah - 2017

Table 16.1
AQAP affiliates in Mahrah - 2017

Ser Name Title Location of Origin Remarks

1 Mohammed Salem Bir al-Sa’b AQAP affiliate Bayt Sumud tribe

2 Abu Bakr Mohammed al- AQAP affiliate Hawf
Jaylani
3 Rashid Ali al-Sulimy AQAP affiliate Hawf
4 Hisham al-Hamad AQAP affiliate Hawf
5 Aydha bin Dhuwama AQAP affiliate Subaiha
6 Mohammed Arman AQAP affiliate Bayt Sumud Tribe
/Herma region
7 Khudress Arman AQAP affiliate Bayt Sumud Tribe Brother to
/Herma region Mohammed Arman

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Annex 17: Conflict Map of Bayda’1

__________________
1
Developed by the Panel.

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Annex 18: Network of Abd al-Wahhab al-Humayqani

Table 18.1
Network of Abd al-Wahhab al-Humayqani

Ser Name Position Location of Origin Remarks

1 Abdo Rabbo Hussein al-Wuhayshi Senior aide to Abd Bayt Sumud tribe
al-Wahhab al-
Homaiqani
2 Ali Mohammed Taher al-Homaiqani Bayda’ Resistance Hawf
3 Mohammed Ali Mohammed Taher Financial Officer Hawf
al-Homaiqani
4 Hisham al-Hamad Hawf
5 Hussein Ali Mohammed Taher Subaiha
al-Homaiqani
6 Suleiman Mohammed Abd al- Bayt Sumud tribe
Rahman al-Homaiqani / Herma region
7 Abd al-Rahman Abdullah Bayt Sumud Tribe Brother to
Mohammed al-Homaiqani / Herma region Mohammed
Arman

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Annex 19: Associates of Abu al-Abbas

Table 19.1
AQAP associates of Abu al-Abbas

Ser Name Position Location Remarks

1 Ali al-Hassan Salik brigade Saber mountain Related to Abd al-Malik al-
Hudaby (also AQAP)
2 Majid Mahyub Salik brigade Saber mountain Lieutenant to Abu al-Abbas
(a.k.a Majid Aby Ayhum)
3 Azzam al-Farhan Jund al-Khalifa Lieutenant to Abu al-Abbas
brigade (ISIS associated) 1

Table 19.2
Subordinates of Abu al-Abbas

Ser Name Position Location Remarks

1 Ammar al-Jendaby Deputy Houd al-Sharaf

(a.k.a Umar al-Jandabi) and al-Shaab
school
2 Adnan Rozaiq al-Qamishy Hassan brigade al-Saeed library Also a Damaj student
3 Maran Ghalib Commander Musy Gate
4 Nathan Kuwati Nephew of Maran Galib
(serial 3).

Table 19.3
Political and civilian associates of Abu al-Abbas

Ser Name Position Location Remarks

1 Abdu Hamoud al-Sagheer Teacher Allied to al-Islah through

Sheikh Hamoud Saeed
Makhalfi (Islah)
2 Harith Lutf al-Aizy Prison escapee Suq al-Samil,
/ ex judge in Houd al Sharaf
AQAP courts area

__________________
1
Formerly worked under Abu Malik al-Musabi, who was killed in action in the Tha’bat area in June 2016.

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Annex 20: Yemeni Government Military Districts and Commanders

Table 20.1
Yemeni Government Military Districts and Commanders

Military
District Area Name

1 Sayyun Major General Saleh Muhammad Tamis 1

2 Mukalla Major General Faraj Salamin al-Bahasani 2
3 Ma’rib Major General Ahmed Hasan Jibran 3
4 Aden Major General Fadhl Hasan
5 Hudaydah Major General Amr Sajaf 4
6 Amran / Sa’dah Major General Amin al-Wa‘ili 5
7 Dhamar / Sana’a Major General Nasser al-Dhaybani 6

__________________
1
On 20 June 2017, Tamis was lightly wounded while attempting to mediate a tribal dispute in Hadramawt.
2
On 29 June 2017, President Hadi named al-Bahasani Governor of Hadramawt to replace Ahmed bin Brik, who was
fired for joining the STC.
3
Appointed on 21 January 2017.
4
Appointed on 23 February 2017. Sudanese troops are active in district 5 under the command of Brigadier General
Hafiz Taj Maki.
5
When Major General al-Wa‘ili is out of the district, the acting commander is Major General Mansur bin Thawabah .
6
Appointed 22 August 2017.

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Annex 21: Presidential Protection Brigade Commanders

Table 21.1
Presidential Protection Brigade Commanders

Ser Name Brigade Rank

1 Sind al-Rahwah 1st Brigadier General

2 Abd al-Raqib Dabwan 2nd Brigadier General
3 Ibrahim Haydan al-Sayari 3rd Brigadier General
4 Mahran al-Qubati 4th Brigadier General 1
5 Adnan al-Rozaiq 5th Brigadier General 2

__________________
1
Brigadier General Mihran bin Muhammad bin Sayyid al-Qubati was born in 1983 in the Khor Maksar district of Aden.
He is also known by the kunya Abu Jaf‘ar and is loyal to President Hadi
2
Brigade formed by presidential decree on 17 November 2017.

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Annex 22: Camp 20 case study

I. Introduction

1. Camp 20 1 was named after the police uprising of 20 June 1967 (Black Tuesday) against British
authorities. 2 It was established under the former People Democratic Republic of Yemen (PDRY). The camp
was maintained under the Central Security Forces since unification until July 2015.

2. The Panel continues to investigate a number of arbitrary detentions by Governme nt security forces
and armed groups operating throughout the liberated governorates of Yemen. A number of incidents in
Aden this year led to investigations of Camp 20 in the Crater District of Aden governorate. 3 Ordered closed
on 28 October 2017 by President Abdo Rabbo Mansour Hadi, 4 Camp 20 was under the command of Imam
Ahmed Muhammed Abdu al-Salwy, 5 who resigned on 31 October 2017.

3. The case of Amjad Mohammed Abd al-Rahman, assassinated on 14 May 2017, is at the centre of
the investigation. His assassination and detention related abuses remain unsolved and without proper
judicial investigation by local authorities.

II. Background
4. Imam Ahmed Muhammed Abdu al-Salwy, a.k.a Imam al-Nubi, is originally from the Crater district
of Aden governorate. He is regarded as a local preacher and youth leader within the al -Islah Party. 6 It is
reported that Imam al-Nubi joined the al-Islah party in 2007, leading a group of party loyalists in 2011
when conflict erupted between Southern Secessionists (Hirak) and al -Islah during the youth uprising
against Ali Abdullah Saleh (YEi.003).

5. Al-Nubi later led a group of armed elements against Houthi-Saleh forces in Tawilah
neighbourhood of Crater district from March to July 2015. Al -Nubi is said to have taken control of Camp
20 in August following the liberation of Aden from Houthi -Saleh forces.

6. Imam al-Nubi’s ascent through the ranks of the Southern Resistance, and his integration into the
Security Belt Forces, was facilitated by the position held by his half -brother Mukhtar al-Nubi. 7 Mukhtar
was appointed commander of the 5 th Support Brigade 8 on 23 November 2016 after leading Security Belt
Forces in the Radfan district of Lahj governorate. 9 Mukhtar is a well-respected leader within Hirak.
Reports indicate that Imam al-Nubi was instrumental in arming Mukhtar and his forces in 2015 from his
arsenal in Crater.

__________________
1
Today across from Aban Mosque in Crater, Aden.
2
https://www.nam.ac.uk/explore/aden-emergency-1963-67; and
http://hansard.millbanksystems.com/lords/1967/jun/21/south-arabia-mutiny-by-federal-forces.
3
Camp 20 fell under the Ministry of Interior, previously occupied by Central Security Forces until liberatio n of Aden in
July 2015.
4
http://www.aden-tm.net/NDetails.aspx?contid=35227.
5
Imam al-Nubi did not hold any military rank, as Camp 20 remained under the Ministry of Interior until ordered closed
by president Hadi. He was regarded as a ‘civilian leader’ of the camp. Although Imam al-Nubi dressed in military
uniform, no insignias or ranks were ever displayed; http://adengd.net/news/285234/. Imam is his given name, not his
title.
6
al-Tajammu al-Yamani lil-Islah (Yemeni Congregation for Reform).
7
a.k.a. Mukhtar Ahmed Abdu al-Nubi; Mukhtar Ali al-Nubi; Mukhtar Ali Muthni Saleh al-Nubi; and Mukhtar Ahmed
Abdu al-Nubi.
8
http://almandeb.news/?p=74113.
9
http://adengd.net/news/212587/.

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III. Amjad’s case10

7. Elements belonging to the forces in Camp 20 have been accused of engaging in a harassment
campaign against those political activists and individuals perceived as supporting ‘secularist agendas’ in
Aden. 11 Among those targeted was Amjad Mohammed Abd al-Rahman. 12

8. Amjad was a fourth-year student at Aden university, in his early 20s, and has being engaged in
political activism since 2011. In February 2015, he co -founded the al-Nadi al-Nasiyya Cultural
Organization with a group of like-minded youths. His activism focused on promoting political ideas that
conflicted with those of local religious leaders. On 24 January 2017, he published a post on his Facebook
page discussing sermons from the al-Hamad mosque in Crater District. That same day he was forcefully
removed from near his home by armed men and detained in Camp 20. He was released 24 hours later,
deprived of sleep and telling his family he had been tortured.

9. Amjad told the story of his detention in a dark room inside the Camp 20 facilities. Amjad indicated
he was repeatedly questioned about his views on God, upsetting his interrogators by answering ‘I am my
own god’, meaning he was self-taught and not a student of any particular religious shaykh. Interrogators
are believed to have misinterpreted this and used it as evi dence of him being an atheist.

10. At 11:45 hours on 14 May 2017 Amjad was assassinated at the Café Max (an internet shop) on
Kuwait Street in Shaykh Othman district. One masked man shot Amjad four times in the face. Witnesses
were unable to provide sufficient information about the shooter. The media attributed responsibility to
elements from Camp 20. 13

11. Individuals familiar with Amjad’s case point to threats received via WhatsApp text messages from
one ‘Khaled Sa’yl’ and others from inside Yemen and outside, and public warnings via media outlets against
his activism.

IV. Other incidents

12. As a result of the allegations against Amjad, such as him being atheist, his family was unable to
hold his funeral services in the area of Crater. 14 He had to be buried in al-Shab district instead. A number
of close acquaintances were also harassed by elements from Camp 20 immediately following his death.

13. Among those also harassed by elements from Camp 20 were journalists Hani al -Junaid, Hussam
Radman of Dubai TV, Majid al-Shuabi of Abu Dhabi TV, Ismail Salim of Shaqdafah TV
(detained/tortured) and Khaled Senami. 15

V. Remaining concerns

14. Although Camp 20 has been ordered closed by President Hadi, 16 and Imam al-Nubi has resigned
from his command, it is unclear as where he and his troops have been reassigned. The Panel continues to
monitor individuals who exerted influence over Imam al -Nubi and his troops from outside the Camp and
government institutions.

__________________
10
Information provided with informed consent from the family.
11 https://english.alarabiya.net/en/features/2017/04/04/Yemeni -student-in-Aden-gets-detained-tortured-with-electric-
wires.html. The Panel has verified another case where elements associated with Camp 20 were reportedly behind
another case of arbitrary arrest and detention because of the detainee being an atheist. In this case, harassments and
death threats resulted in the individual having to flee Aden.
12
https://womenpress.org/en/womenpress-news/journalists-released-after-being-tortured-and-charged-with-atheism-in-
aden.html.
13
https://www.hunaaden.com/news39780.html.
14
https://www.middleeastmonitor.com/20170722-yemens-al-hirak-movement/.
15
https://twitter.com/demolinari/status/917971227825844224 .
16
https://presidenthadi-gov-ye.info/archives/ ‫ رئيس‬- ‫ الجمهورية‬- ‫ يوجه‬- ‫ مدير‬- ‫أمن‬- ‫ عدن‬- ‫ بوقف‬- ‫أ‬/.

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Annex 23: Shabwani Elite Forces command structure

Table 23.1
Shabwani Elite Forces command structure

Ser Name Unit Rank

1 Muhammad al-Buhar al-Qumayshi Shabwani Elite Forces Lieutenant Colonel

2 Mahdi Mohammed Barahma Shabwah Rapid Intervention Major
Forces
3 Muhammed Saleh Farah al-Kirby Harad Base (Shabwah) General
4 Muhammed Saleh al-Qakhly al-Nasy Training Facilities (Shabwah) Colonel

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Annex 24: Key Houthi military and security figures

Figure 24.1
Prominent Houthi military commanders

Ser Name Role Rank/Remarks

1 Muhammad Abd al-Karim al-Ghamari head of general staff major general
2 Ali Hamud al-Mushki deputy head general staff major general
3 Muhammad Fadhl head of the navy and coastal major general
defence
4 Abdullah Yahya al-Hakim head of intelligence major general
(YEi.002) known
as Abu Ali al-
Hakim 1
5 Muhammad Nasser al-Ata‘fi minister of defence major general
6 Ali al-Kuhlani head of military logistics and major general
support
7 Husayn al-Ruhani head of special operations major general
8 Muhammad al-Miqdad head of military operations major general
9 Ibrahim al-Shami head of the air force major general

__________________
1
Abdullah Yahya al-Hakim was previously the military commander of district 4 for the Houthis. He was appointed to
his new position on 20 August 2017.

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Annex 25: Key Houthi political figures

Table 25.1
Key Houthi political figures

Serial Name Title Organization Remarks

1 Mohammed Ali al- president supreme Military wing

Houthi revolutionary
committee
2 Abdullah Yahya ‘Abu chief of military ministry of Military wing
Ali’ al-Hakim intelligence / commander defence
(YEi.002) of republican guard (Dec
2017)

3 Mutlaq ‘Abu Emad’ deputy director national security Military wing

Amer al-Marani bureau (‘NSB’)

4 Abdul Karim al- chairman executive Affiliated with

Houthi committee Military wing
5 ‘Mohammed’ Abd al- spokesman politburo Affiliated with
Salam Salah Filaitah Military wing

6 Saleh al-Samad president supreme political Political wing

council

7 Mahdi al-Mashat chief of staff sayyid abdulmalik Political wing

badr al-din al-
houthi
8 Ali al-Emad chairman revolutionary Political wing
monitoring
committee/
politburo
9 Hamza al-Houthi foreign affairs Political wing
committee

10 Hussein al-‘Izzi foreign affairs Political wing

committee

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Annex 26: Saudi Arabia published Houthi “Most Wanted” list1

Figure 26.1
Houthi “Most Wanted” list

Ser Name Reward (US$) Remarks

1 Abdul Malik al-Houthi 30,000,000 (YEi.004)
2 Saleh Ali al-Samad 20,000,000 president, supreme political
council
3 Muhammad Ali al-Houthi 20,000,000 head of revolutionary committee
4 Zakariya Yahya al-Shami 20,000,000
5 Abdullah Yahya al-Hakim 20,000,000 (YEi.002)
6 Abd al-Khaliq al-Houthi 20,000,000
7 Muhammad Nasser al-Ata‘fi 20,000,000 minister of defence
8 Yusif al-Madani 20,000,000 head of 5 th military district
9 Abd al-Qadir al-Shami 20,000,000
10 Abd al-Rabb Jarfan 20,000,000
11 Yahya Muhammad al-Shami 20,000,000
12 Abd al-Karim Amir al-Din al-Houthi 15,000,000
13 Yahya Badr al-Din al-Houthi 10,000,000
14 Hassan Muhammad Zayd 10,000,000
15 Safr Maghdi al-Sufi 10,000,000
16 Muhammad Abd al-Karim al-Ghamari 10,000,000
17 Abd al-Raziq al-Marwani 10,000,000
18 Amar Ali al-Marani 10,000,000
19 Ibrahim Ali al-Shami 10,000,000
20 Fadhl Muhammad al-Matla 10,000,000
21 Muhsin Saleh al-Hamzi 10,000,000
22 Ahmed Saleh Hindi Daghsan 10,000,000
23 Yusif al-Fiyshi 10,000,000
24 Husayn Hamud al-Azzi 5,000,000
25 Ahmed Muhammad Yahya Hamid 5,000,000
26 Talal Abd al-Karim Aqlan 5,000,000
27 Abdullah Muhammad Hajir 5,000,000

28 Fares Mana‘a 5,000,000

29 Ahmed Abdullah Aqubat 5,000,000
30 Abd al-Latif Hamud al-Mahdi 5,000,000 head of 4 th military district

31 Abd al-Hakim Hashim al-Khaywani 5,000,000

__________________
1
This list was released by the Saudi Arabian government on 6 November 2017.

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Ser Name Reward (US$) Remarks

32 Abd al-Hafiz al-Saqqaf 5,000,000

33 Mubarak Mishn al-Zayadi head of 3 rd military district;

member of SPC
34 Ali Sa‘id al-Razimi 5,000,000
35 Saleh al-Sha‘ir 5,000,000
36 Ali Hamud al-Mushki 5,000,000 deputy head general staff
37 Muhammad Sharaf al-Din 5,000,000
38 Dhayf Allah Qasim al-Shami 5,000,000

39 Abu Ali al-Kuhlani 5,000,000

40 Ali Nasser Qirshah 5,000,000

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Annex 27: Houthi family tree

Table 27.1
Houthi family tree

1. The Houthi family tree shows the sons of Badr al-Din Amir al-Din Husayn al-Houthi (1922 – 2010), the father of
Abdulmalik al-Houthi (YEi.004).

Ser Wife Name Remarks

Wife 1 From Khawlan bin Amr

1 Husayn Badr al-Din al-Houthi 1
(Deceased) (1960 – 2004)
Initial Houthi Movement Leader
2 Yahya Badr al-Din al-Houthi Current minister of education in
‘28 November government’
3 Ahmed Badr al-Din al-Houthi
4 Abd al-Qadir Badr al-Din al-Houthi
Wife 2
5 Muhammad Badr al-Din al-Houthi
6 Hamid Badr al-Din al-Houthi
Wife 3
7 Ibrahim Badr al-Din al-Houthi
8 Amir al-Din Badr al-Din al-Houthi
Wife 4 A Sayyid woman from the Sittin
family
9 Abdulmalik Badr al-Din al-Houthi (YEi.004)
10 Abd al-Khaliq Badr al-Din al-Houthi (YEi.001)
11 Najm al-Din Badr al-Din al-Houthi
12 Abd al-Salam Badr al-Din al-Houthi
13 Ali Badr al-Din al-Houthi

__________________
1
Husayn Badr al-Din al-Houthi married one of his daughters to a top lieutenant, Yusif al -Madani, who continues to
remain a key Houthi military commander to this day.

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Annex 28: Houthi military districts and commanders

Table 28.1
Houthi military districts and commanders

military
district Location Name Remarks
1 Sayyun No known Houthi commander
2 Mukalla No known Houthi commander
3 Ma’rib Mubarak Salih al-Mishin
4 Aden Abd al-Latif Hamud Mahdi Appointed 25 April 2017
5 Hudaydah Yusif al-Madani 1
Married to daughter of
Husayn Badr al-Din al-
Houthi
6 Amran / Sa’dah Muhammad Yahya al-Hawari 2
7 Dhamar / Sana’a Hamid al-Kharashi

__________________
1
Al-Madani is a trusted member of the Houthis, who was named Houthi commander of the 5 th military district when a
Saudi Arabia-led coalition attack on the port city of Hudaydah looked imminent.
2
The Panel is now able to confirm that reports that major general Muhammad al -Hawari was killed in the Saudi Arabia-
led coalition strike on the Community Hall in Sana’a on 8 October 2016 were incorrect.

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Annex 29: Summary of reported PBIED and SVIED attacks (2017)

Table 29.1
Summary of reported PBIED and SVIED attacks (2017)

Civilian Military Civilians Military Claimed

Ser Date Location Device Type Target Fatalities 1 Fatalities Injured Injured by Remarks

1 7 Jan 2017 Al-Wadea, PBIED Military checkpoint, 6 20 No

Abyan claim
2 11 Jan 2017 Loder, PBIED 1 5 AQAP
Abyan
3 15 Feb. 2017 Bayda SVIED 3 3 AQAP
4 24 Feb 2017 Zinjibar SVIED Military Camp 8 11 AQAP
5 29 Mar 2017 Al-Houta, SVIED 6 AQAP
Lahj
6 9 Apr 2017 Aden PBIED CP Failed attack
7 7 Jun 2017 Zanjibar SVIED Governor 2 AQAP
8 12 Jun 2017 Da’wan SVIED 2 AQAP
9 8 Aug 2017 Lodor SVIED 103 Brigade 3 6 AQAP Arif Abd al-Hassan
Habib
10 23 Oct 2017 Abyan SVIED CP 4 10 AQAP
11 29 Oct 2017 Al Mahfad, SVIED / 3 AQAP
Abyan PBIED
12 5 Nov 17 Khormaksar, SVIED 18 ISIL SVIED and 4 x
Aden PBIED
13 14 Nov 17 Shiekh SVIED Security Belt 6 ISIL Abu Haga al-Adani
Othman, Operations Centre
Aden
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__________________
1
Excluding the ‘suicide’ bomber. Named in Remarks column where published.
 S/2018/68

Figure 29.1
Summary of SVIED attacks (Quarterly 2016 - 2017)

Figure 29.2
Summary of PBIED attacks (Quarterly 2016 - 2017)

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Annex 30: AQAP linked persons of interest to the Panel1

Figure 30.1
Prominent AQAP figures

Ser Name Role Remarks

1 Qasim Yahya al-Raymi Leader (QDi.282) Yemeni

2 Ibrahim Asiri Chief bomb maker Saudi
3 Said Attif al-Awlaqi Head of AQAP (Shabwah ) 2
Yemeni
4 Muntasir Badi Financier in Abyan

5 Khaled Umar Batarfi Battle commander Yemeni

6 Khalid al-Daba AQAP leader in Lahij May be under arrest 3
7 Muhammad Abdullah Husayn Daramah Judge on Shariah Council
8 Muhammad Abd al-Karim al-Ghazali Financial Head Yemeni
9 Abu Yusif al-Lahji Head of AQAP (Lahij) Yemeni
10 Khamis Arfaj al-Marwani Head of AQAP (Jawf) Yemeni
11 Salim al-Najdi Media figure Saudi
12 Ibrahim al-Quso Propagandist Former Guantanamo
detainee / Sudanese
13 Wa’il Sayf (Abu Salim al-Adani) Head of AQAP (Aden) Yemeni
14 Muhammad Umar Military Commander Jawf Yemeni
15 Nayif al-Qaysi 4
Financier (QDi.402) Yemeni

16 Adil Abdu al-Dhuhbani 5 Militia Leader Ta’izz Yemeni,

(a.k.a Abu al-Abbas)
17 Sayf Abd al-Rabb al-Hayashi 6 Weapons/Dealer Financier Yemeni

18 Bilal Ali Muhammad al-Wafi 7 Commander in Ta’izz Yemeni

19 Ghalib al-Zaidi 8 AQAP leader in Ma’rib (QDi.401) Yemeni

__________________
1
This table has been compiled from a variety of sources, including confidential sources, interviews with individuals
inside and outside of Yemen, open sources, news reports and AQAP documents.
2
On 20 June 2017 a US strike killed Abu Khattab al-Awlaqi, the deputy head of AQAP in Shabwah.
3
The Panel has received a report, which it has been unable to verify, that security forces loyal to President Hadi may
have arrested Khalid al-Daba.
4
Nayif al-Qaysi is the former Governor of Bayda’ for the legitimate Government. He was sanctioned by the UN ISIL
(Da‘esh) and Al-Qaida Sanctions Committee on 22 February 2017. He was removed from his post as Governor on 23
July 2017. He was sanctioned by the Terrorist Financing Target Center (TFCT) and its member States on 25 October
2017.
5
Adil Abdu al-Dhubhani, better known as Abu al-Abbas, is the most powerful militia leader in Ta’izz (see 2017 Panel
Mid-term Update, paras. 28 – 33). He has received significant support in the past from the UAE. He was sanctioned by
the TFCT on 25 October 2017.
6
Sayf al-Hayashi was sanctioned by the TFTC on 25 October 2017.
7
Bilal al-Wafi was sanctioned by the TFTC on 25 October 2017.
8
On 22 February 2017 the ISIL (Da‘esh) and Al-Qaida Sanctions Committee listed al-Zaidi (QDi.401).

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Annex 31: AQAP and the tribes (and the 23 May 2017 US raid)

I. Introduction

1. This section includes a case study of the al-‘Idhal clan of the Murad tribe and the 23 May 2017 US raid.

2. Tribes in Yemen are not monolithic entities 1 that either decide to join or provide refuge to AQAP as a
2
group. Instead what tends to happen is that individual members of a particular tribe join AQAP and then welcome
outside fighters into their village, effectively providing AQAP with an umbrella of tribal protection.

3. Such tribesmen have dual identities. They are AQAP members to al-Qaida, and tribesmen to their tribes.
This means that while they are sometimes targeted and killed as AQAP members, they are often avenged as
tribesmen.

4. This issue of dual identities is also at the centre of the US raid on a cluster of homes belonging to the al-
‘Idhal clan of the Murad tribe3 in Ma’rib on 23 May 2017.4 The US carried out the raid on a target it had identified
as AQAP, which was then defended on the ground as an attack on the tribe.

II. Background

5. In late April or early May 2017, approximately three weeks prior to the raid, one member of the clan,
Muhammad Said al-‘Idhal, an AQAP member, was killed in a US armed unmanned aerial vehicle (AUAV) strike. 5
Following his death, at least seven men from outside the clan moved in to his house. 6 It was this very house that
the United States then subsequently targeted on 23 May 2017.

III. The Raid

6. The night raid began at approximately 02:00 hours on 23 May 2017, with approximately 50 troops from
the US Navy SEAL7 special forces descending on the village.8 Almost immediately the raiding party came under
attack by the al-‘Idhal clan tribesmen, who seeing their village was under attack could not have been aware that
only one particular house was being targeted.

7. Five tribesmen were killed, ranging in age from 15 – 80, and another five were wounded.9 Both AQAP

__________________
1
Many, although certainly not all, tribes in Yemen belong to two main tribal confederations, Hashid and Bakil. Each
tribal confederation is led by a shaykh ma-shaykh (sheikh of sheikhs). The Hashid tribe is smaller than the Bakil tribe
but, at least until recently, acted as a more cohesive whole. Neither tribal confederation, however, speaks with one voice
on any given issue. Indeed, it is more helpful to think of eac h tribal confederation as an alliance of member states, each
pursuing their own self-interests.
2
In fact, the tribes of Yemen and AQAP are closer to natural enemies than they are to allies, as both groups seek to
control and administer territory.
3
The Murad tribe has roughly 60,000 members.
4
This is the second US military raid against AQAP that the Panel has documented in 2017. The first, on 29 January
2017, included the use of UAE forces.
5
The US acknowledged a drone strike in Ma’rib on 18 April 2017. http://www.centcom.mil/MEDIA/NEWS-
ARTICLES/News-Article-View/Article/1162256/pentagon-spokesman-updates-iraq-syria-yemen-operations/. Another
drone strike in Ma’rib was reported on 29 April 2017, which killed an individual named Muhammad al -‘Idhal.
http://www.almasdaronline.com/article/90812. The Panel has not been able to independently verify if this individual
was Muhammad Said al-‘Idhal.
6
These appear to be the seven men the US targeted and killed during the raid as AQAP members. Confidential local
source.
7
Sea, Air and Land.
8
Confidential local source, and http://www.centcom.mil/MEDIA/PRESS-RELEASES/Press-Release-
View/Article/1190002/us-forces-conduct-counter-terrorism-raid/.
9
The names of the dead are: Nasser Ali Mahdi al-‘Idhal, Saleh Lutfaf al-‘Idhal, Yasser Lutfaf al-‘Idhal, Abdullah Said
al-‘Idhal, and Abd al-Qadir Saleh al-‘Idhal.

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and local Yemenis highlighted this fact in subsequent statements and accounts of the raid. 10 The US troops also
killed the seven individuals that they had targeted, who were staying in the house of the late Muhammad Said al-
‘Idhal.11

8. The US has not released the names of those seven individuals, and neither local Yemeni reporting nor the
AQAP statement acknowledged their deaths.12 AQAP members who survived the raid prevented villagers from
entering Muhammad Said al-‘Idhal’s house after the raid, and over the next few days the seven bodies were
removed from the village for burial in an unknown location. 13

IV. The aftermath

9. The raid on the AQAP house in an al-‘Idhal clan village illustrates the complexities of fighting AQAP in
the midst of the broader conflict in Yemen. Although the US achieved its target, by killing seven AQAP members,
it also killed five tribesmen who were acting in self-defence. They were defending their village not to protect AQAP
but rather because of the perception that their village was under attack by, to them, unknown armed men. Such
actions can have unintended consequences. On one hand, armed UAV strikes and armed raids such as the one on
23 May 2017 can induce some clans and tribes to deny aid to AQAP. On the other hand, the death of tribesmen can
act as a force-multiplier for AQAP, leading to more men joining AQAP in order to avenge their fallen relatives.14

10. AQAP is aware that it needs the tribes to operate in Yemen. If the tribes in Yemen were to turn against
AQAP en masse, the terrorist organization would have no freedom to manouvere, no recruits and no future. AQAP
is aware of this and has therefore developed a two-track approach to the tribes. Firstly, AQAP propaganda
frequently stresses its desire for positive relations with various tribes; overtures that most tribes ignore. 15 Secondly,
it is actively working to recruit young tribesmen,16 not simply because it wants more fighters, but because these
particular tribal fighters represent the entry into tribal society that AQAP so desires.

11. It is not the tribes of Yemen that are a problem when it comes to the war against AQAP. Indeed, the tribes’
could be a powerful ally against AQAP, providing some governance and structure in areas where AQAP would
otherwise have a free hand. Instead, it is young, not quite fully integrated tribesmen who represent the greatest
challenge. They are able to use their two identities as tribesmen and AQAP members to blur the lines and provide
AQAP with protection and foothold they need to grow and thrive in Yemen.

12. The Panel believes that the dynamics outlined in this annex represent a threat to the peace, security, and
stability of Yemen.

__________________
10
See AQAP’s statement of 26 May 2017. https://azelin.files.wordpress.com/2017/05/al-qacc84_idah-in-the-arabian-
peninsula-22about-the-american-landing-upon-the-muracc84d-tribe22.pdf. For Yemeni reporting see, for example:
http://www.almasdaronline.com/article/91432.
11
http://www.centcom.mil/MEDIA/PRESS-RELEASES/Press-Release-View/Article/1190002/us-forces-conduct-
counter-terrorism-raid/.
12
Similarly, the United States statement failed to acknowledge the five tribesmen killed in th e raid.
13
Confidential local source.
14
The Panel has information suggesting that both trends are taking place within the al -‘Idhal clan.
15
For most tribes AQAP is a minor nuisance not a major concern.
16
Part of this recruiting process involves the payment of monthly salaries, which the Panel continues to investigate.
Older tribesmen typically have little interest in joining AQAP as they are often more established men with families and
positions of influence in the tribes and see AQAP as a threat.

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Annex 32: ISIL affiliated persons of interest to the Panel1

Figure 32.1
Prominent ISIL figures

Ser Name Role Remarks

1 Abu Sulayman al-Adani 2 Head of ISIL-Yemen Yemeni

2 Nasir al-Ghaydani An ISIL leader Deceased 3
(Abu Bilal al-Harbi)
3 Khaled Abdullah al-Marfadi Military commander Yemeni 4
4 Khaled Umar al-Marfadi Financial official Yemeni 5
5 (Abu Abd al-Rahman al-Muhajir) 6 Shariah official
6 (Abu Saleh) 7
Military commander
7 Radwan Muhammad al-Qanan 8
ISIL leader in Aden Yemeni
8 Muhammad Said Umar Bawazir An ISIL leader
9 Nashwan al-Wali al-Yafa‘i 9 Financier Yemeni
10 Khalid Sa’id Ghabish al-Ubaydi 10
ISIL leader in Hadramawt Yemeni

__________________
1
This table has been compiled from a variety of sources, including confidential sources, interviews with individuals
inside and outside of Yemen, open sources, and news reports.
2
Abu Sulayman al-Adani was named by Terrorist Financing Target Center (TFCT) and its member states as the head of
ISIL-Yemen and was sanctioned on 25 October 2017. See: https://www.treasury.gov/press-center/press-
releases/Pages/sm0187.aspx.
3
The Panel can confirm that Abu Bilal al-Harbi has been killed. Following his death, ISIL in Yemen named a training
camp in al-Baydha after him.
4
al-Marfadi is from Yafa‘a. He was sanctioned by the TFCT on 25 October 2017.
5
Also from Yafa‘a.
6
al-Muhajir reportedly also uses the kunya: Abu Muhammad al-Kanani.
7
Abu Saleh reportedly also uses the kunya: Abu Husayn.
8
Radwan Qanan was sanctioned by the TFCT on 25 October 2017.
9
Nashwan al-Yafa‘i was sanctioned by the TFCT on 25 October 2017.
10
Khalid al-Ubaydi was sanctioned by the TFCT on 25 October 2017.

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Annex 33: Arms supply routes to Houthi territory in Yemen

Table 33.1
Summary of arms supply routes to Houthi territory in Yemen

Status for
Ser Transport mode Destination / Route arms supply Remarks

1 Air Airports in Houthi Closed ▪ Saudi Arabia-led coalition has air

controlled territory superiority. Air routes under constant
airborne surveillance.
2 Air Air delivery to improvised Highly ▪ Saudi Arabia-led coalition has air
air strips or by air drops unlikely superiority. Air routes under constant
airborne surveillance.
3 Sea Red Sea ports (e.g. Unlikely ▪ All vessels require UNVIM clearance
Vessels > 300t 1 Hudaydah) and are subject to random or planned
inspection or interdiction by Saudi
Arabia-led coalition naval forces.
▪ No seizures on this route since March
2017.
▪ Possible for non-explosive weapons in
component form concealed in cargo, but
land routes are a better option, as
interdiction risks are lower.
4 Sea Red Sea ports or across Unlikely ▪ Small vessels risk interdiction by Saudi
Vessels < 300t beaches Arabia-led coalition or Combined
Maritime Forces (CMF) 2 naval forces.
▪ No seizures on this route since March
2017.
5 Sea Gulf of Aden ports or across Effectivel ▪ Ports in territory under control of
beaches (west of Qishn) y closed legitimate government of Yemen.
▪ Vessels risk interdiction by Saudi
Arabia-led coalition or CMF naval
forces.
▪ Subsequent interdiction risk on land
route.
▪ Evidence of vessels smuggling arms
from Yemen to Somalia across beaches. 3

__________________
1
Regulation V/19 of SOLAS (International Convention for the Safety of Life at Sea, 1974) requires that automatic
identification systems (AIS) be fitted and used on vessels of above 300 gross tonnes. The AIS may be switched off to
hide a vessel’s position if engaged in nefarious activity, but the vessel will still be visible to naval radar. Lack of an
AIS signal would raise the immediate suspicions of Saudi Ara bia-led coalition or CMF naval vessels.
2
https://combinedmaritimeforces.com.
3
Paras. 103 - 110 to S/2017/925.

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Status for
Ser Transport mode Destination / Route arms supply Remarks

6 Sea Arabian Sea ports or across Possible ▪ Ports in territory (e.g. Ghaydah) not
beaches (east of Qishn) under effective control of legitimate
government of Yemen.
▪ Vessels risk interdiction by Saudi
Arabia-led coalition, CMF or Omani
naval forces.
▪ Subsequent interdiction risks on land
route.
▪ Interdiction risk at border control posts
(BCP) if landed in Oman.
7 Land From Oman Possible ▪ Initial interdiction dependent on
effectiveness of control checks at busy
BCP.
▪ Interdiction risks increase with proximity
to Houthi controlled territory as
checkpoints increase with proximity.
▪ Not suitable for larger calibre weapons,
such as artillery, as concealment in
vehicles difficult.
8 Land Southern main supply route Open ▪ Interdiction risks increase with proximity
(MSR) from Al Ghaydah to Houthi controlled territory as
checkpoints increase with proximity.
▪ Not suitable for larger calibre weapons,
such as artillery, as concealment in
vehicles difficult.
9 Land Northern MSR via Thamud Open ▪ Interdiction risks increase with proximity
to Houthi controlled territory as
checkpoints increase with proximity.
▪ Not suitable for larger calibre weapons,
such as artillery, as concealment in
vehicles difficult.
10 Land From Saudi Arabia Closed ▪ Border is well patrolled.

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Annex 34: Summary of Houthi-Saleh SRBM and FFR attacks against Saudi Arabia

1. Tables 34.1 to 34.4 contain summaries of Houthi-Saleh forces short-range ballistic missile (SRBM) or free flight rocket FFR attacks
against Saudi Arabia during the conflict. The data wa s supplied by Saudi Arabia, and then compared against the media and Houthi -Saleh
reported attacks in paragraphs 81 to 85 and annex 42 of S/2017/81 and the consolidated tables below developed by the Panel.

2. Table 34.1 contains a summary of the total number of reported or confirmed launches.

Table 34.1
Summary of confirmed or reported Houthi-Saleh SRBM and FFR attacks against Saudi Arabia (2015 - 2017)

Borkan -2
SCUD B /C or (SCUD ER) 1 or
Hwasong-5/6 Borkan-2H Qaher-1 (S-75) Zelzal-2/3 OTR-21 Tocka Not Known Totals
Year L 2
Intercepted 3
L Intercepted L Intercepted L Intercepted L Intercepted L Intercepted L Intercepted

2015 3 1 (33%) 1 9 (50%) 2 1 (50%) 23 11

8 (48%)
2016 4 6 1 (17%) 2 2 2 12 2 1 (50%) 2 2 11 3 (27%) 47 21
(100%) 4 (50%) (100%) (45%)
2017 9 4 (43%) 4 4 1 14 33 23
(100%) 9 (78%) (73%)
Totals 9 2 (22%) 11 6 (58%) 4 25 2 1 (50%) 2 2 3 18 112 55
6 (100%) 2 (58%) (49%)

__________________
1
These are probably SCUD-B or Hwasong-5 or 6 SRBM modified for extended range by the Houthi -Saleh alliance.
2
L = Launched.
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3
Reported or confirmed as being intercepted and destroyed in flight by anti -missile systems. Probably PAC-3 Patriot.
4
Note corrected figures from annex 42 of S/2017/81.
 18-00267

3. Table 34.2 contains a summary of missile and FFR launches that have been confirmed to the Panel by the Government of Saud Arabia.

Table 34.2
Summary of Saudi Arabian government confirmed Houthi-Saleh SRBM and FFR attacks against Saudi Arabia (2015 - 2017)

Borkan -
SCUD B /C or 2(SCUD ER) 5 or
Hwasong-5/6 Borkan-2H Qaher-1 (S-75) Zelzal-2/3 OTR-21 Tocka Not Known Totals

Year L 6
Intercepted 7
L Intercepted L Intercepted L Intercepted L Intercepted L Intercepted L Intercepted

2015 2 1 (50%) 7 5 (71%) 2 1 (50%) 11 7 (64%)

2016 1 1 2 2 1 10 5 2 (40%) 23 15
(100%) (100%) 5 (67%) (65%)
2017 7 3 (33%) 4 4 1 12 25 18
(100%) 5 (80%) (72%)
Total 3 2 (67%) 9 5 (58%) 2 19 2 15 60 41
s 6 (73%) 2 (68%) (70%)

__________________

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5
These are probably SCUD-B or Hwasong-5 or 6 SRBM modified for extended range by the Houthi -Saleh alliance.
103/329

6
L = Launched.
7
Intercepted and destroyed in flight by anti-missile systems. Probably PAC-3 Patriot.
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4. Table 34.3 contains a summary of launches reported in open source media, but not confirmed by the Government of Saudi
Arabia.

Table 34.3
Summary of other media reported Houthi-Saleh SRBM and FFR attacks against Saudi Arabia (2015 - 2017)

Borkan -
SCUD B /C or 2(SCUD ER) 8 or
Hwasong-5/6 Borkan-2H Qaher-1 (S-75) Zelzal-2/3 OTR-21 Tocka Not Known Totals
Intercepted
Year L9 10
L Intercepted L Intercepted L Intercepted L Intercepted L Intercepted L Intercepted

2015 1 0 (0%) 11 4 (36%) 12 4 (33%)

2016 5 0 (0%) 9 2 (22%) 2 1 (50%) 2 2 6 1 (17%) 24 6 (25%)
(100%)
2017 2 1 (50%) 4 3 (75%) 6 4 (60%)
Totals 6 0 (0%) 2 1 (50%) 2 6 (30%) 2 1 (50%) 2 2 1 4 (40%) 42 14
0 (100%) 0 (33%)

__________________
8
These are probably SCUD-B or Hwasong-5 or 6 SRBM modified for extended range by the Houthi -Saleh alliance.
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9
L = Launched.
10
Intercepted and destroyed in flight by anti-missile systems. Probably PAC-3 Patriot.
 18-00267

5. Table 34.4 contains more details of SRBM missile and FFR attacks that have been confirmed by the government of Saudi
Arabia (shown as a numerical serial), 11 and those reported in the media or claimed by the Houthi-Saleh alliance (shown as an
alphabetical serial).

Table 34.4
Details of confirmed and reported Houthi missile and FFR attacks against Saudi Arabia (June 2015 – 18 December 2017)
Serial Coordinates ( 0 ‘ “ )

KSA Likely Patriot Distance

Confirmed 12 Reported Date missile type Launch point interception Impact point Probable target (km) Location / Remarks

1 6 Jun 2015 16 35 36N N 18 08 03 Khamis Mushayt 219

43 43 06E E 42 25 51
2 A 29 Jun 2015 SCUD 16 32 50N 19 11 15N Sulayvil base 308
44 07 39E 45 01 15E
3 B 26 Aug 2015 Qaher-1 15 18 05N 16 51 23N Jizan 238 Jazan
44 12 54E 42 41 22E
4 C 15 Oct 2015 SCUD 15 18 49N 18 56 48N Khamis Mushayt 435
44 12 52E 42 41 58E
D 4 Dec 2015 Qaher-1 16 53 59N Jazan airport Coordinates are centre of target
44 35 01E and not impact point.
E 9 Dec 2015 Qaher-1 16 53 57N Jazan Coordinates are centre of target
44 33 26E and not impact point.
F 9 Dec 2015 Qaher-1 16 53 57N Jazan Coordinates are centre of target
44 33 26E and not impact point.
99 G 13 Dec 2015 Qaher-1 16 25 40N 18 18 17N Khamis Mushayt
44 08 08E 42 43 54E
5 14 Dec 2015 Unidentified 18 27 32N Khamis Mushayt
42 41 58E
H 18 Dec 2015 Qaher-1 17 33 19N Najran Impacted east of town
44 14 33E
I 19 Dec 2o15 Qaher-1 17 33 19N Najran Impacted near museum
44 14 33E
J 19 Dec 2015 Qaher-1 15 23 41N 16 30 41N Al-Wahal BCP Coordinates are centre of target
44 10 10E 42 58 24E and not impact point.

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11
In either table 42.2 of S/2017/81 or letter to the Panel dated 4 October 2017.
12
The coordinates provided by the Saudi Arabian authorities are predominantly based on th ose from the Shared Early Warning System (SEWS) data.
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Serial Coordinates ( 0 ‘ “ )

KSA Likely Patriot Distance

Confirmed 12 Reported Date missile type Launch point interception Impact point Probable target (km) Location / Remarks
K 20 Dec 2015 Qaher-1 18 18 19N Khamis Mushayt Coordinates are centre of target
42 44 43E airport and not impact point.
6 L 21 Dec 2015 Qaher-1 15 23 41N 16 43 53N Jazan 213
44 10 10E 42 44 22E
7 M 21 Dec 2015 Qaher-1 15 24 48N 16 52 08N Jazan airport 230
44 13 05E 42 41 01E
99 N 23 Dec 2015 Qaher-1 16 26 05N 18 18 19N Jazan Aramco ?
443 03 55E 42 43 43E
8 25 Dec 2015 Qaher-1 16 26 05N 18 30 49N Jazan 266 Landed north of Khamis
44 03 55E 42 49 31E Mushayt town
O O 26 Dec 2015 Qaher-1 15 15 48N Reported Najran
44 14 05E destroyed
in flight
9 P 27 Dec 2015 SCUD 15 54 20N 17 54 38N Najran 226 Najran
43 59 51E 44 10 14E
Q 27 Dec 2015 Qaher-1 16 53 47N Jazan Coordinates are centre of target
44 33 26E and not impact point.
R 28 Dec 2015 Qaher-1 Reported Najran
destroyed
in flight
S 30 Dec 2015 Qaher-1 Reported
destroyed
in flight
10 T 31 Dec 2015 Qaher-1 N 15 19 42 N 17 00 06 217 Jazan
E 44 04 33 E 43 02 06
11 U 1 Jan 2016 Qaher-1 16 41 43N 17 59 39N Khamis Mushayt 182
43 51 51E 42 49 26E
12 7 Jan 2016 Qaher-1 15 00 08N 16 50 16N Jazan 265
44 13 35E 42 38 47E
13 28 Jan 2016 Qaher-1 14 59 08N 17 34 51N Khamis Mushayt 292 Disappeared from radar screen
44 20 23E 44 43 39E
V 8 Feb 2016 Qaher-1 18 18 19N Khamis Mushayt Coordinates are centre of target
42 44 43E airport and not impact point.
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Serial Coordinates ( 0 ‘ “ )

KSA Likely Patriot Distance

Confirmed 12 Reported Date missile type Launch point interception Impact point Probable target (km) Location / Remarks
14 W 8 Feb 2016 Qaher-1 16 25 39N 18 00 43N Abha 222
44 08 34E 42 52 06E
15 X 9 Feb 2016 Qaher-1 15 20 50N 16 59 28N Jazan 248
44 02 33E 42 29 06E
16 11 Feb 2016 Qaher-1 15 22 55N 17 02 45N Jazan 269 Exploded in the air
44 09 29E 42 27 15E
17 Y 13 Feb 2016 Qaher-1 16 24 23N 18 05 56N Abha 234
44 04 51E 42 45 56E
18 Z 9 May 2016 16 23 52N 18 16 48N Khamis Mushayt 252
44 05 01E 42 55 50E
19 AA 9 May 2016 16 40 05N 18 20 43N Najran 243 Disappeared from radar screen
43 50 53E 42 22 57E
AB 13 May 2016 Qaher-1 16 53 47N Jazan Coordinates are centre of target
44 33 26E and not impact point.
AC 20 May 2016 Qaher-1 16 53 47N Jazan Coordinates are centre of target
44 33 26E and not impact point.
20 AD 30 May 2016 Qaher-1 15 29 57N 17 00 53N Najran 171
44 05 27E 44 22 11E
AE 6 Jun 2016 SCUD Reported King Khalid
destroyed airbase
in flight
21 AF 4 Jul 2016 Qaher-1 16 43 42N 18 17 22N Abha 214
43 50 27E 42 39 55
22 AG 23 Jul 2016 Qaher-1 Unidentified 17 34 34N Najran
44 09 03E
23 27 Jul 2016 Qaher-1 16 37 41N 17 56 47N Khamis Mushayt 159
43 50 44E 43 15 23E
24 AH 10 Aug 2016 Qaher-1 16 49 17N 17 44 43N Khamis Mushayt 135
43 48 21E 43 02 57
25 AI 10 Aug 2016 Qaher-1 16 46 44N 17 39 06N Abha 103
42 48 23E 43 07 24
26 12 Aug 2016 Qaher-1 15 52 24N Unidentified Jazan

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Serial Coordinates ( 0 ‘ “ )

KSA Likely Patriot Distance

Confirmed 12 Reported Date missile type Launch point interception Impact point Probable target (km) Location / Remarks
27 13 Aug 2016 Qaher-1 16 44 54N 18 18 04N Abha 208
43 46 29E 42 40 48
AJ 16 Aug 2016 Qaher-1 18 20 43N Najran Seven reported civilian
42 22 57E fatalities
AK 19 Aug 2016 Qaher-1 Reported Khamis Mushayt
destroyed
in flight
28 25 Aug 2016 15 16 29N 16 40 03N Jazan 208
44 03 45E 42 45 50E
AL 26 Aug 2016 SCUD 16 52 55N Jizan Hamiyej Coordinates are centre of target
42 33 44E Power Station and not impact point.
29 30 Aug 2016 15 55 09N 18 16 37N Landed in Aqabat 278
43 11 19E 42 19 20E al-Sima’ (Abha)
AM 31 Aug 2016 Zelzal-3 18 20 43N Najran Coordinates are centre of target
42 22 57E and not impact point.
AN 2 Sep 2016 SCUD 21 28 58N King Fahid Coordinates are centre of target
40 32 39E airbase and not impact point.
AO 10 Sep 2016 SCUD Asir province
AP 10 Sep 2016 SCUD 17 39 46N Al Shqaigh water
42 03 44E plant
30 11 Sep 2016 15 56 01N 16 48 34N Jazan 135
43 58 06E 43 05 46E
31 AQ 12 Sep 2016 SCUD 16 49 03N 17 57 13N Khamis Mushayt 148
43 43 56E 43 00 18E
AR 4 Oct 2016 Zelzal-3 Al Montazah
AS 8 Oct 2016 Qaher-1 18 18 17N Khamis Mushayt Coordinates are centre of target
42 43 54E and not impact point.
99 AT 9 Oct 2016 16 44 33N 21 28 36N Ta’if 634
43 49 10E 40 27 18E
AU 20 Oct 2016 16 53 47N Jazan Coordinates are centre of target
44 33 26E and not impact point.
AV 20 Oct 2016 18 20 43N Najran Coordinates are centre of target
42 22 57E and not impact point.
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Serial Coordinates ( 0 ‘ “ )

KSA Likely Patriot Distance

Confirmed 12 Reported Date missile type Launch point interception Impact point Probable target (km) Location / Remarks
99 AW 27 Oct 2016 17 03 14N 22 02 50N Khulays 667
43 23 33E 39 52 14E governorate,
Ta’if
AX 1 Nov 2016 16 53 47N Jazan Coordinates are centre of target
44 33 26E and not impact point.
AY 1 Nov 2016 18 20 43N Najran Coordinates are centre of target
42 22 57E and not impact point.
AZ 1 Nov 2016 Asir province
BA 15 Nov 2016 OTK-21 Reported Najran
Tochka destroyed
in flight
BB 15 Nov 2016 OTK-21 Reported Najran 2 nd FFR reported
Tochka destroyed
in flight
BC 26 Nov 2016 Reported Khamis Mushayt
destroyed
in flight
BD 27 Jan 2017 Reported Najran
destroyed
in flight
BE 30 Jan 2017 13 56 41N Zuqar Island
42 45 36E
99 5 Feb 2017 ER 17 07 09N 24 20 32N Muzahimiyah 852
43 33 39E 46 19 04E
32 14 Feb 2017 16 35 35N 18 10 55N Khamis Mushayt 221
43 53 45E 42 39 09E
33 18 Feb 2017 16 46 28N 17 38 50N Abha 201
43 48 48E 42 08 20E
34 16 Mar 2017 14 52 29N 16 37 11N Ta’if 198
42 58 29E 42 36 45E
35 19 Mar 2017 15 32 43N 16 52 17N Jazan 191
44 10 17E 43 02 28E
36 27 Mar 2017 16 37 50N 17 57 09N Khamis 154

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Serial Coordinates ( 0 ‘ “ )

KSA Likely Patriot Distance

Confirmed 12 Reported Date missile type Launch point interception Impact point Probable target (km) Location / Remarks
37 27 Mar 2017 16 37 50N 18 18 33N Najran 191
43 52 20E 43 30 28E
38 27 Mar 2017 16 38 14N 18 08 00N Najran 166
43 51 25E 42 54 00E
39 19 May 2017 16 37 14N 17 59 52N Najran 163
43 51 28E 43 19 28E
40 4 Feb 2017 17 03 47N 22 12 57N Khamis Mushayt
43 36 29E 45 37 55E
41 14 Feb 2017 16 35 35N 18 10 55N Khamis Mushayt 221
43 53 45E 42 39 09E
42 18 Feb 2017 16 46 28N 17 38 50N Shuqayq 203
43 48 48E 42 08 20E

43 16 Mar 2017 14 52 29N 16 37 11N Jazan 198

42 58 29E 42 36 45E
44 19 Mar 2017 15 32 43N 16 51 17N Jazan 189
44 10 17E 43 02 28E
BF 20 Mar 2017 Reported Najran
destroyed
in flight
45 BG 27 Mar 2017 Qaher-1 16 37 50N 17 57 09N Khamis Mushayt 157
43 52 20E 43 26 43E
46 BH 27 Mar 2017 Qaher-1 16 37 50N 18 18 33N Khamis Mushayt 191
43 52 20E 43 30 28E
47 BI 27 Mar 2017 Qaher-1 16 38 14N 18 08 00N Abha 195
43 51 25E 42 54 00E
48 BJ 27 Mar 2017 Qaher-1 16 37 14N 17 59 52N Khamis 163
43 51 28E 43 19 28E
49 19 May 2017 SCUD 17 03 47N 22 12 57N Najran
43 36 29E 45 37 55E
50 BK 19 May 2017 ER 17 07 10N 24 03 54N Riyadh 825
43 36 57E 46 24 28E governorate
51 BL 22 Jul 2017 Borkan-2H 17 04 04N 23 58 55N Yanbu‘ 965
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Serial Coordinates ( 0 ‘ “ )

KSA Likely Patriot Distance

Confirmed 12 Reported Date missile type Launch point interception Impact point Probable target (km) Location / Remarks
52 BM 26 Jul 2017 SCUD-C 16 23 36N 21 23 46N Ta’if 668 Warhead is cluster munition
type 44 05 03E 40 34 10E type from a SCUD-C type.
53 7 Aug 2017 18 04 46N 16 32 03N Jazan 289
45 00 02E 42 48 33E
54 27 Aug 2017 18 04 46N 18 13 80N 58
43 03 26E 42 31 26E
BN 27 Oct 2017 22 12 57N Najran
45 37 55E
99 BO 4 Nov 2017 Borkan-2H 15 57 09N Reported 24 56 27N Riyadh, King 820+
43 48 13E destroyed 46 43 29E Khaled airbase
in flight
BP 30 Nov 2017 Reported Khamis Mushayt
destroyed
in flight
100 BQ 19 Dec 2017 Borkan-2H Riyadh 1,000+

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Annex 35: SCUD-C type modification programme

I. Background
1. The first time an SRBM was launched with an extended range (ER -SRBM) beyond that normally
expected of the known missiles in the Houthi-Saleh inventory was on 9 October 2016. Since then there has
been four confirmed launches of SRBM with a range slightly in excess of the known maximum range of
550km to 600km for this SRBM type (see table 35.1).

Table 35.1
Confirmed Houthi-Saleh SCUD-C launches (>600km)

Range
Ser Date Target (km) Remarks

1 9 Oct 2016 Ta’if 634 ▪ Reported as intercepted by Patriot MIM-104 system.

2 27 Oct 2016 Ta’if 667 ▪

3 19 May Najran 611 ▪ Reported as intercepted by Patriot MIM-104 system.

2017
4 26 Jul 2017 Ta’if 668 ▪ Warhead is a cluster munition type from SCUD-C type (see
paragraph 6)

2. The Panel finds that it is almost certain that these particular missiles were not the ER -SRBM (at
annex 36), but rather as a result of minor modifications being made to the SCUD -C type SRBM known to
be in the possession of the Houthi-Saleh alliance prior to January 2015. It is possible that this is the missile
the Houthis refer to as the Borkan-2 (see figure 35.1).

Figure 35.1
Houthi media image of Borkan-2

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II. Technical options to extend range

3. The Panel assesses that the only realistic technical options to extend the range 1 of the SCUD-C type
SRBM, are limited to:

(a) Reducing the explosive weight within the warhead to virtually nil;

(b) Reducing component weight;

(c) Increasing the liquid bi-propellant capacity of an SRBM by adding additional fuel and
oxidizer tanks; or

(d) Increasing the liquid bi-propellant capacity of an SRBM by adding larger fuel and oxidizer
tanks in place of the current tanks.

A. Reduction of warhead weight

4. The removal of the high explosive warhead would save, dependent on th e SRBM type,
approximately 600kg in weight. A significant proportion of the weight of the missile consists of the liquid
bi-propellant (65%) and warhead (10% - 15%). The majority of the propellant expended launching the
SRBM along the first phase of its trajectory in order to gain height above ground and counter the force of
gravity; hence the missile is continually losing weight as the propellant burns. Therefore, in theory, a
noticeable range increase could be achieved by the removal of the warhead weight , as this would be less
weight that is needed to be lifted against the force of gravity. Even without a warhead, the damage caused
entirely by the kinetic energy of the missile body impacting the ground would be localized, but significant.

5. As one of the aims of the Houthi-Saleh missile campaign is strategic propaganda, then the loss of
any warhead damage is insignificant to them. Appendix 1 shows the weight of propellant and warheads for
each of the SRBM in the possession of Houthi-Saleh forces at the outbreak of the conflict. This data
supports the finding that extended range for these particular SRBM types may be being gained by removing
the explosive from the warheads SCUD-C type missiles in their arsenal. 2

6. Evidence of a programme to lighten the load of these SRBM in order to extend range is the use of a
carrier warhead for sub-munitions, as identified by the Panel from the remnants of the launch against Ta’if
on 26 July 2017 (figure 35.2).

__________________
1
Due to the differential in altitude above sea level (ASL) a missile fired from the higher altitude of Yemen (approx.
2,250m ASL) against Riyadh (610m ASL) there would be a very limited range extension of only 1.4km.
2
The removal of the warhead would alter the centre of gravity of the missile. Computational fluid dynamics (CFD)
modeling may be required to confirm how much ballistic stability would be retained in flight, and what extended range
could be expected.
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Figure 35.2
SCUD C type sub munition warhead (Ta’if, 26 July 2017) 3

2. Reducing component weight

7. A reduction in the weight of components would result in an incremental, but small, increase in the
theoretical maximum range of the missile system. This was certainly done in the case of the SRBM fired
against Ta'if on 22 July 2017. Among the remnants of this SRBM the Panel identified that the compressed
air bottles used to pressurise the fuel system were made of a composite material, rather than the steel of
the standard SCUD-C type system (figures 35.3 and 35.4). The compressed air bottles used were modern
and manufactured by a United States company, Mine Safety Appliances Incorporated, 4 or one of their
subsidiaries. The response from the manufacturer to a Panel tracing request for this component 5 included
a comment that the component was mass-produced and no serial numbers were allocated.

Figure 35.3 Figure 35.4

MSA composite compressed air bottles MSA composite compressed air bottles

__________________
3
All imagery taken by Panel unless otherwise indicated. This image was from a confidential source.
4
http://us.msasafety.com/Supplied-Air-Respirators-%28SCBA%29/SCBA-Parts-%26-Accessories/Air-
Cylinders/p/000010000800002001.
5
Panel letter dated 20 November 2017.
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3. Increasing liquid propellant capacity (additional fuel and oxidiser tanks)

8. A small increase in the liquid bi-propellant capacity of an SRBM could be achieved by adding
additional small fuel and oxidizer tanks in any free space within the missile body. Such free space is very
limited though, and the installation of the necessary piping and valves to integrate with the designed fuel
flow system would require a significant degree of engineering expertise to achieve in practice. The Panel
has seen no evidence of this approach being taken.

4. Increasing liquid propellant capacity (larger fuel and oxidiser tanks)

9. A larger increase in the liquid bi-propellant capacity of an SRBM would be achieved by adding
larger fuel and oxidizer tanks, in place of the current tanks. This would require a significant degree of
engineering expertise to achieve as it would require cutting the missile in half to add the extended range
tanks and additional pipe lengths and valves. It is part of the route taken by the Democratic People ’s
Republic of North Korea (DPRK) in the development of the Hwasong-7 and Hwasong-9 extended range
SCUD variants. 6 Outside the DPRK only Syria has been reported to own such a system. The Panel finds
that the Houthi has not taken this approach, as the dimensions of the liquid propell ant tank remnant
inspected from the Ta'if SRBM fall within those of the normal SCUD -C type SRBM.

III. IHL non-compliance

10. The Panel finds that in their use of SRBM, Houthi-Saleh forces failed to take account of the
inherently indiscriminate nature of the weapon in that:

(a) Since the blast and fragmentation danger areas are primarily based on the size and design
of the explosive warhead, this missile’s likely impact on civilians was foreseeable, especially when
directed at civilian populated areas; and

(c) As such weapons have a known Circular Error Probability (CEP) 7 of up to 1,000m, they
should not be used against targets within 1,000m of the civilian population.

IV. Panel findings

11. The Panel finds that:

(a) The SRBM used for the attack against Ta’if, Saudi Arabia on 26 July 2017 was highly
probably a SCUD-C / Hwasong-6 type SRBM with minor modifications to save weight, thus
slightly increasing range;

(b) Based on the ranges achieved, it is highly likely that the oth er attacks listed in table 35.1
were also locally modified SCUD-C / Hwasong-6 type SRBM and not the ER-SRBM covered at
annex 36;

(c) It is possible that the Houthi-Saleh missile engineers of the 5 th and 6 th missile brigade
would have the technical capacity to make such minor modifications with little, or no, external
assistance;

(d) It is almost certain that the minor modifications made to the SCUD -C / Hwasong-6 type
SRBM would not result in the necessary increase in range to target the Riyadh area.

__________________
6
https://missilethreat.csis.org/missile/scud-er/.
7
The CEP is a measure of a weapon system's precision. It is defined as the radius of a circle, centered on the mean,
whose boundary is expected to include the landing points of 50% of the missiles fired.
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Appendix A to Annex 35: Analysis of Houthi-Saleh SRBM weights versus extended range

Table A.35.1
Weight of liquid bi-propellant and explosive warheads in Houthi-Saleh SRBM

SCUD-B SCUD-C Hwasong-5 Hwasong-6

Tonne Tonne Litres Tonne Litres Tonnes Litres
Item Nomenclature s Litres s s

Fuel Kerosene (TM- 1.31 1,61 1.81 2,23 1.31 1,617 1.81 2,235
185) 8 7 5
Oxidise IRFNA 9 (AK-271) 2.45 1,81 2.53 1,87 2.45 1,815 2.53 1,874
r 5 4
Total Bi-Propellant 3.76 3,43 4.34 4,10 3.76 3,432 4.34 4,109
2 9
Warhea 0.99 0.60 0.99 0.77
d
Launch Weight 10 5.90 6.40 5.90 6.57 (est)
% Weight Saving 16.7% 9.4% 16.7% 11.7%
Design Range (km) 300 600 350 600

__________________
8
JET A-1 could be used as a substitute. It is the standard aviation fuel for turbo engines and available in Yemen.
9
Inhibited Red Fuming Nitric Acid.
10
This is the weight of the bi-propellant, warhead and the missile components (e.g. rocket motor, guidance unit, missile
body).
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Annex 36: Extended Range (ER) Short Range Ballistic Missile (Borkan-2H)

I. Introduction

1. The Panel travelled to Riyadh, Saudi Arabia from 17 to 21 November 2017 to inspect debris
recovered from short-range ballistic missiles (SRBM) attacks launched against Saudi Arabia by Houthi -
Saleh forces on 19 May, 22 July, 26 July and 4 November 2017. The Saudi Arabian authorities recovered
all components unless otherwise indicated. The Panel also visited Saudi Arabia from 24 – 26 December
2017 to inspect remnants of a further SRBM attack on Riyadh on 19 December 2017.

2. The Panel visited two Saudi Arabian military bases where the authorities had gathered remnants
from four SRBM attacks against Saudi Arabia. The Panel also visited four impact points from the 4
November 2017 attack, where other remnants of the SRBM were identified. These being inside Riyadh city
and King Khaled International Airport (KKIA) (see figures 36.1 and 36.2).

Figure 36.1
Impact points of final ER-SRBM track (4 November 2017) 1

__________________
1
All imagery taken by Panel unless otherwise indicated.
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Figure 36.2
Remnants identified along final ER-SRBM track (4 November 2017) 2

II. Initial observations

3. The launch and impact points are at table 36.1. The Panel made the following initial general
observations on the condition of the SRBM remnants (table 36.2):

Table 36.1
Launch and impact points

Attack date Target Launch point Impact point Remarks

19 May 2017 Southern 17 003’47”N, 24 003’54”N,

Riyadh 43 026’29”E 46 024’28”E
Province
22 Jul 2017 Yanbu 17 004’04”N, 23 049’29”N,
43 051’08”E 38 023’47”E
26 Jul 2017 Taif 16 023’36”N, 21 023’46”N,
44 005’03”E 40 034’10”E

__________________
2
Images taken by Saudi Arabia security agencies immediately after attack.
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Attack date Target Launch point Impact point Remarks

4 Nov 2017 Riyadh 15 057’59”N, 24 056’27”N, Impact point of warhead.
43 048’13”E 46 043’29”E Launch point based on Patriot data.
19 Dec 2017 Riyadh 16 039’51”N, 24 035’43”N, After intercept. Two impact points for
43 052’13”E 46 038’17”E 3 Patriot intercept missile debris were
identified. No ER-SRBM debris has yet
been identified.

Table 36.2
General observations on all missile remnants inspected in Saudi Arabia by the Panel

Approximate Location of
Attack date Target range (km) remnants inspected General observations on SRBM remnants

19 May 2017 Southern 838 Military base, Partial inspection due to time constraints
Riyadh 100km from and inaccessibility of components. No
Province Riyadh conclusions made.
22 Jul 2017 Yanbu 942 Military base, Rear section, comprising elements of
Riyadh rocket motor, recovered from immersion in
water by the Saudi authorities.
Partial inspection only possible.
26 Jul 2017 Taif 668 Military base, Several components, including only
100km from remnant of warhead and guidance section
Riyadh recovered by the Saudi authorities.
Subsequent Panel analysis identified this
was not an ER-SRBM (see annex 35).
4 Nov 2017 Riyadh 1,043 Military base, The most complete SRBM with extensive
Riyadh and well-preserved remnants.
Full inspection by Panel.
19 Dec 2017 Riyadh 965 Riyadh area No ER-SRBM debris yet identified.

III. Analysis of SRBM tracks

A. 4 November 2017 ER-SRBM against Riyadh

4. The Saudi Arabian authorities provided the Panel with the coordinates of the ER -SRBM flight path
based on data from the target event report from the Patriot anti -missile system. 4 The Panel confirmed the
track of the ER-SRBM (figure 36.3) through extrapolation of the identified four points of debris impact.
The track was assessed as being 017 0 and which bisects the Saudi Arabian provided launch coordinates,
which are for the settlement of al-Mayqa’ in Amran governorate of Yemen. Based on the high intensity
presence of Saudi Arabian armed forces along that track inside Saudi Arabian held territory within Yemen,
the Panel finds it almost certain that the ER-SRBM for the 4 November 2017 attack could not have been
covertly launched from a closer range within Saudi Arabian territory.

__________________
3
Other impact point at 24 0 33’45”N, 46 038’13”E.
4
The Shared Early Warning Systems (SEWS) data estimates a launch point one degree of longitude further North,
which would mean a range of 937km.

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Figure 36.3
Estimated ER-SRBM track from launch to impact

B. Reported tracks for all ER-SRBM launches

6. The Panel was unable to independently verify the tracks of the other four ER -SRBM provided by
the Saudi Arabian authorities. The Saudi Arabian authorities have reported them as being as shown in
figure 36.5.

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Figure 36.5
Reported tracks of other SRBM 5

IV. Technical analysis of remnants

7. Table 36.3 summarises the technical observations of the Panel for the 4 November 2017 Riyadh
ER-SRBM. This analysis will be further refined should any response to tracing requests be rece ived.
Supporting imagery and further explanation is at appendix A. Table 36.4 summarises the technical
observations of the Panel for the 22 July 2017 Yanbu ER-SRBM. Confirmatory imagery from the 22 July
Yanbu ER-SRBM is at appendix B.

__________________
5
The Panel found that the 26 July 2017 was not an ER-SRBM, but a slightly modified SCUD-C/Hwasong-6. See details
at annex 35.
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Table 36.3
Technical observations for the 4 November 2017 ER-SRBM

Serial Functional area Component General observations on ER-SRBM remnants

1 Warhead Warhead Cone ▪ Fragments of the warhead were recovered, but neither
the shape nor design could be determined from them.
▪ The explosive weight of the warhead could not be
determined from the fragmentation, and it is possible a
reduced weight warhead was used as a weight saving
measure to extend range.
2 Guidance Unit Electronics ▪ One component had 2009 stamped on it, which is
probably the year of manufacture of that component.
▪ The guidance unit is of a different, and more modern,
design to that of the SCUD-C and Hwasong-6.
3 Missile Main Exterior skin ▪ The exterior skin of the oxidiser tanks is made of 5000
Assembly series of between 1.8mm to 2.1mm thickness aluminium
(MMA) alloy, rather than steel, which is used on the SCUD C,
Hwasong-6 and Qiam-1 missiles.
▪ The welding of the MMA exterior skin was typical of
that to be expected in a manufacturing plant.
▪ The welding used to join the oxidiser and fuel sections
together and to the guidance and tail units was of a low
quality and was not applied by the original
manufacturer. It was artisanal welding.
▪ The exterior skin had been over painted blue, with
Borkan 2-H (in Arabic) added in white. The quality of
the over paint did not match the quality of the original
manufacturers paint, which could be observed on parts
of the missile body.
▪ The over paint of the artisanal welds used to join the
main components showed brush strokes, as opposed to
the general original body paint that had been sprayed
on.
4 Missile Main Liquid propellant ▪ The fuel tank is to the rear of the oxidiser tank, whereas
Assembly tanks in the SCUD and Hwasong-6 series of SRBM it is
(MMA) situated forward of the oxidiser tank.
▪ The oxidiser tank had internal aluminium alloy
reinforcing ribs added to increase structural rigidity.
▪ The oxidizer tank was split in two internally to allow
for the redistribution of oxidizer in flight to maintain a
suitable centre of gravity, and hence ballistic stability.
▪ 6 valves were identified on the oxidiser tank sections.
(On the Yanbu 22 July 2017 SRBM three valves were
identified on the fuel tank section). 6 A SCUD-C type
missile only has 4 x Valves (1 x FFV, 1 x FDV, 1 x OFV
and 1 x ODV). See appendix 3.
5 Tail unit Rocket Motor ▪ The rocket motor is typical in design of that to be found
on the SCUD and Hwasong-6 series of SRBM. Further
analysis is needed to identify if any modifications have
been made to improve performance of the rocket motor.

__________________
6
The Panel’s initial analysis is that for the complete missile system these may be 3 x Combined Drain and Fuel Filling
Valves (DFFV), 3 x Vent Valves, 2 x Pressure Relief Valves (PRV) and 1 x Valve (purpose unknown). Panel
investigations continue to determine the exact purpose of each valve.
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Serial Functional area Component General observations on ER-SRBM remnants

6 Tail unit Jet vane housing ▪ Three jet vane housings had a logo cast in the metal.
internal control vanes The logo reported 7 to be that of Shahid Bakeri
Industries, Iran. A tracing request has been sent to the
Islamic Republic of Iran.
7 Tail unit Compressed air ▪ The compressed air bottles recovered were made of
bottles carbon fibre and not the steel bottles expected from a
SCUD C. The Panel assesses this was a design change
to save weight. 8
8 Tail unit Stabiliser fins ▪ According to the Saudi authorities no stabiliser fins
were recovered during their search. The Qiam-1
guidance system negates the need for stabiliser fins,
which is also a weight saving measure.

Table 36.4
Technical observations for the 22 July 2017 ER-SRBM

Serial Functional area Component General observations on ER-SRBM remnants

1 Missile Main Fuel tank ▪ A pipe from the fuelling valve of the fuel tank is in
Assembly place to allow for fuelling in the horizontal position
(MMA) only. This has tactical advantages, allowing the missile
to be fuelled in buildings or caves before being erected
into its vertical launch position.
▪ It would also have a secondary function as an anti-static
measure during fuelling operations.
▪ The welding of the MMA exterior skin was typical of
that to be expected in a manufacturing plant.
▪ The welding used to join the fuel tank to the tail section
was of a low quality and was almost certainly not
applied by the original manufacturer. It was artisanal
welding.
▪ The exterior skin of the fuel tanks is made of 5000
series of between 1.8mm to 2.1mm thickness aluminium
alloy, rather than steel, which is used on the SCUD C,
Hwasong-6 and Qiam-1 missiles.
2 Tail unit Rocket Motor ▪ The rocket motor is typical in design of that to be found
on the SCUD and Hwasong-6 series of SRBM. Further
analysis is needed to identify if any modifications have
been made to improve performance of the rocket motor.
3 Tail unit Compressed air ▪ The compressed air bottles recovered were made of
bottles carbon fibre and not the steel bottles expected from a
SCUD C. The Panel assesses this was a design change
to save weight.
4 Tail Unit Wind-bolts 9 ▪ The Wind-bolt housing identified had metal covering
the location where the fin would normally be located.
There was no evidence of a fin ever having been
removed.

__________________
7 The logo is very similar to that on trade stand at http://www.sns.co.ir/?p=327. The Iranian response to a tracing
request stated that this was not the Sahid Bagheri Industrial Group (SBIG) as initially thought by the Panel. A
second tracing request relating to Shahid Bagheri (Bakeri) Industries has been sent and a response is awaited.
8
The composite bottles identified on the Ta’if SRBM (26 July 2017) were mass-produced by a US manufacturer. A
tracing request was responded to by the US manufacturer who stated that the bottles were mass produced and that serial
numbers were not allocated to each bottle produced.
9
Four wind-bolts are used to secure the base of the missile to the launch platform to keep the missile secure during
elevation and prior to firing. It is highly probable that these are explosively cut during the missile firing sequence
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Serial Functional area Component General observations on ER-SRBM remnants

10 Tail unit Stabiliser fins ▪ No stabiliser fins were recovered. The Qiam-1 guidance
system negates the need for stabiliser fins, which is also
a weight saving measure.

8. There are significant design differences to this SRBM compared to the SCUD -C / Hwasong-6
series of SRBM known to be in Houthi-Saleh possession since the imposition of the targeted arms embargo
on 14 April 2015. The technical differences of this SRBM are of such significance, and would require
complex ballistic modelling, extensive test and evaluation, that they highly unlikely to be the result of
upgrades to the SCUD-C / Hwasong-6 series. The use of an aluminium alloy body, lack of fins and use of
lighter components, such as the carbon fibre air bottles, all indicate design changes specifically made to
save weight. The reversal of the positioning of the fuel and oxidizer ta nks in the main missile assembly is
most likely related to ensuring the centre of gravity is in a position to ensure stable flight. Table 36.5
summarises the design features and characteristics of the SCUD -C / Hwasong-6 versus Qiam-1 versus the
Borkan-2H. These are illustrated at figure 36.6.

Table 36.5
Design feature comparison

Serial Functional area Design Feature SCUD C Hwasong-6 Qiam-1 Borkan-2H

1 Warhead Triconic warhead shape X 10 ✓ ✓ ✓

2 Guidance Unit Advanced guidance system X X ✓ ✓

3A Missile Main Steel airframe ✓ ✓ ✓ X

Assembly (MMA)

3B Missile Main Aluminium alloy airframe X X X ✓

Assembly (MMA)

3C Missile Main Oxidiser tank (Front) X X ✓ ✓

Assembly (MMA)

3D Missile Main Fuel tank (Rear) X X ✓ ✓

Assembly (MMA)
3E Missile Main Horizontal fuelling capability X X ✓ ✓
Assembly (MMA) pipe
3F Missile Main Internal reinforcing X X Not ✓
Assembly (MMA) aluminium alloy ribs known

3G Missile Main Factory quality welding all ✓ ✓ ✓ X

Assembly (MMA) over
3H Missile Main Artisan welding X X X ✓
Assembly (MMA)
3I Missile Main 4 x liquid bi-propellant ✓ ✓ X X
Assembly (MMA) Filling/Draining Valves
3J Missile Main 9 x liquid bi-propellant X X ✓ ✓
Assembly (MMA) Filling/Draining Valves,
Pressure Relief valves (PRV)
and other valves TBC. 11

__________________
immediately prior to launch.
10
X = Not Present.
11
See appendix 3 for comparison of valve layouts on missiles.
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Serial Functional area Design Feature SCUD C Hwasong-6 Qiam-1 Borkan-2H

4A Tail unit Rocket Motor ✓ ✓ ✓ ✓

4B Tail unit Actuator for internal graphite ✓ ✓ ✓ ✓

control vanes

4C Tail unit Composite compressed air X X Not ✓

bottles known

4D Tail unit Wind-bolt housings covered X X ✓ ✓

4E Tail unit Stabiliser fins ✓ ✓ X X

Figure 36.6
Major components and their relative position compared to a Qiam-1 SRBM 12

9. Based on the components seen by the Panel and the design of the ER -SRBM, the Panel finds that
SCUD C / Hwasong-6 missiles are not being modified into the Borkan-2H. The Panel does not discount
the option that some components from these missile types are b eing used in the Borkan-2H though.

V. Estimation of warhead size

10. The crater size at KKIA (figure 36.7) for the 4 November 2017 Borkan-2H attack was estimated
by photogrammetry as being 3.18m in diameter and 0.67m in depth. Explosive engineering software 13
predicts that an explosive mass of 45kg (TNT equivalent) (+/ - 20%) would be required for the formation
of a crater of these dimensions. Open source information states that the warhead size for the Qiam -1 is
750kg, so a reduction in warhead size has very probably been made as a further weight saving measure to
increase range.

__________________
12
Qiam-1 missile image from http://3.bp.blogspot.com/-
qsK7VV6oZfc/Tq1ET0NyVdI/AAAAAAAAADo/NGlhWpeJTsw/s1600/Qiam-1.jpg.
13
Explosive Engineers Toolbox. OnePoint4 Limited.
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Figure 36.7
4 November 2017 crater at KKIA

VI. Source of the Borkan-2H

10. The Panel considers that it is unlikely that the Government of Yemen obtained any new extende d
range (ER) SRBM during the final years of Ali Abdullah Saleh’s (YEi.003) presidency, which ended on 25
February 2012. His relationship with Iran was such that Iranian military support in terms of advanced ER -
SRBM technology, particularly of a missile that had only just entered Iranian operational service during
2010, would almost certainly not be forthcoming. There is also no evidence of the supply of any advanced
ER-SRBM technology to Yemen between the assumption of the Presidency by Abdrabbuh Mansur Had i
and 20 January 2015 when the Houthis took control.

11. During 20 January to 26 March 2015 there would have been a short window of opportunity to ship
complete ER-SRBM to the Houthi-Saleh forces prior to the commencement of the Saudi Arabia -led
coalition air campaign. This is also assessed as unlikely as: 1) the first launch of an ER -SRBM was not
until either 9 October 2016, when a missile flew 634km, 14 or 5 February 2017 when an ER-SRBM impacted
on Muzahimiyah (a flight of 852km); and 2) there would be no need to weld the missile sections together
with artisanal welding. Furthermore, had the Houthi-Saleh forces access to ER-SRBM technology when
the Saudi Arabia-led coalition air campaign started on 26 March 2015, then it is highly likely they would
have used them in retaliatory attacks at that time. If this narrow window of opportunity was exploited then
it is more likely that the Borkan-2H would have been shipped as complete missiles, negating the
requirement to assemble them in Yemen in less than ideal co nditions. The Panel thus considers that the
component sections for these ER-SRBM were almost certainly shipped to Yemen in violation of the

__________________
14
This was the first reported impact of a SRBM beyond the maximum range of 600km for the SCUD -C or Hwasong-6.
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targeted arms embargo of 14 April 2015. The Panel does not yet have prima facie evidence as to the identity
of the supplier.

12. The Panel still considers it unlikely that complete ER-SRBM have been smuggled into Yemen post
the implementation of the targeted arms embargo on 14 April 2015. Their size, being 12m x 1m when
packed in a wooden crate, would have made them vulnerable to interdiction by Saudi Arabia–led coalition
ground and naval forces. Whereas, if smuggled in main section form, 15 the largest section would be
approximately 4m x 1m when packed in a wooden crate, which is a much more manageable and concealable
size. The missile is not modular by design but the main sections could be shipped after manufacture by the
factory for later assembly. The Houthi-Saleh missile engineers then assemble them into complete missiles
and functionality test the systems to ensure reliability on launch. Evidence for this option includes the
difference in weld quality between the main components themselves (factory quality) and the joints
between the main components (poor quality), and the poor over paint quality in places. The missil e when
assembled is then referred to as the Borkan-2H by the Houthi-Saleh alliance. The Panel has not yet seen
any evidence of external missile specialists working in Yemen in support of the Houthi -Saleh engineers.

13. The Panel thus finds that the Borkan-2H is not a missile type known to have been in the possession
of the Yemeni Armed Forces prior to 2015. The design features (at table 36.5 above), technical
characteristics and dimensions are consistent with those reported for the Iranian designed Q iam-1 missile
(illustrated at figure X.6). Notwithstanding this, a major design difference between the Qiam -1 and the
Borkan-2H is that the Qiam-1 is constructed of steel, compared to the aluminium alloy of the Borkan -2H.
The Panel therefore finds that the Borkan-2H is an advanced derivative of the Iranian Qiam-1 specially
designed with weight saving measures by the designers of the Qiam -1 to achieve the range of 1000+km. A
standard Qiam-1 has a declared operational range of 750km.

14. Further evidence of Iranian manufacture of the Borkan-2H components is provided by two
components inspected by the Panel:

(a) Three jet vane housings for the internal graphite control surface vanes are marked with a
logo similar to that of Shahid Bagheri Industries. 16 This organization a subsidiary of the Iranian
Aerospace Industries Organization (IAIO) (figures 36.8 to 36.10). The Panel has sent a tracing
request to the Islamic Republic of Iran and is waiting for a response; and

(b) A printed circuit board (PCB) in a relay box marked SHIG 6081. The Panel believes SHIG
is the abbreviation for the Shahid Hemat Industrial Group. It is a subsidiary of the Iranian
Aerospace Industries Organization. The Panel has sent a tracing request to the Islamic Republic
of Iran and is waiting for a response.

__________________
15
Those sections being a warhead, a guidance unit, a fuel tank, an oxidiser tank and a tail unit.
16
Also known as the Shahid Bagheri Industrial Group (SBIG) and Shahid Bakeri Industries.
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Figure 36.8 Figure 36.9

Jet vane housing with Shahid Bakeri Industries Shahid Bagheri Industries trade stand with logo 17
logo markings

Figure 36.10
Jet vane housing with Shahid Bagheri Industries
logo markings

VII. Likely trafficking routes

15. The Panel thus considers there are now only likely to be three trafficking routes that explain the
availability of this advanced ER-SRBM technology used in the Borkan-2H SRBM:

(a) Along the land route from the Omani border, or Ghaydah and Nishtun in Mahrah
governorate after ship to shore transhipment to small dhows. A route that has already seen limited
seizures of anti-tank guided weapons and also of liquid bi-propellant oxidiser field storage tanks
(see appendix D). The Panel considers this route as the most likely option;

__________________
17 Source: http://www.sns.co.ir/?p=327.
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(b) Through a Red Sea port in shipping containers, via a third country port and not on a vessel
direct from the supplier, or as loose crates using false bills of lading, referring to, for example,
agricultural machinery. This option carries a high risk of interdiction as all containers are now
cross-loaded at either Jeddah or King Abdullah Port and are subjected to inspection by the Saudi
Arabian authorities. 18 Prior to January 2017 Djibouti and Salalah, Oman were used as transhipment
ports for containers, and only 25% were subjected to more detailed inspection. 19 It is possible
shipments of ER-SBRM main sections were successfully shipped using this route prior to its
closure. The Djibouti to Hudaydah container route is now effectively closed as subsequent delays
to shipping due to frequent Saudi Arabia-led coalition re-inspections in the Coalition Holding Area
(CHA) resulted in a significant increase in shipping costs; 20 or unlikely;

(c) Through a Red Sea port concealed within a bulk cargo carrier or even a fuel tanker. This
route carries a high risk of detection by a Saudi Arabia -led coalition inspection in the CHA. In
addition it would require that the illicit cargo be loaded onto a vessel with no recent calls at Iranian
ports, or with Iranian connections, as such vessels are subjected to additional clearance research
by UNVIM and the Saudi Arabia-led coalition naval vessels in the Coalition Holding Area (CHA).

16. The use of small fishing dhows being used across Red Sea beaches is not considered a very likely
option due to the heavy naval presence of the Saudi Arabia -led coalition and Combined Maritime Forces
(CMF) in the Red Sea and Gulf of Aden. No illicit arms shipments to Yemen have been detected on this
route since 20 March 2016, and those detected have been assessed as being destined for Somalia. 21

17. The detection of missile component shipments presents major challenges;

(a) The metal and carbon fibre composition of the components means that arms and exp losive
search (AES) dogs would not indicate that the component containers, likely wooden crates, were
suspicious. Other than the warhead, which could be sent unfilled, there are no explosive or gun oil
scents for the dogs to detect; and

(b) The x-ray profile of the ER-SRBM main sections may not be recognizable to all x-ray
operators, although the warhead should raise suspicions. For example, the fuel and oxidizer tanks
would appear similar to other commercial storage tanks.

VII. IHL aspects

20. In respect of the missiles fired at Saudi Arabia, the Panel cannot conclude that Abdulmalik
al-Houthi (YEi.004) consented to each individual missile strike against Saudi Arabia. However, the Panel
finds without a reasonable doubt that it is the policy adopted by the Houthi leadership that allows for the
continued use of these missiles against Saudi Arabia. Given the foreseeable political and military
repercussions, it is unlikely that the missile launched on 4 November 2017 at King Khalid International
Airport, could have taken place without the knowledge and prior consent of Abdulmalik al -Houthi
(YEi.004). The Panel has concluded that this missile strike violated IHL, in that it targeted a civilian airport,
and constitutes a threat to peace, security and stability of Yemen. (See more detailed IHL analysis at
annex 64).

__________________
18
Source: UNVIM.
19
Ibid.
20
Pacific International Lines (PIL) were the only major shipper using this route and other shippers prefer now using
Jeddah to avoid delays at sea.
21
2017 Panel 2017 Midterm Update and SEMG S/2017/924 (paras. 115 - 118).
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Appendix A to Annex 36: Imagery supporting technical analysis for 4 November Riyadh Borkan-2H

Table A.36.1
Imagery design characteristics of SCUD-C/Hwasong-6 SRBM versus Borkan-2H SRBM 22

Serial 23 Component Remarks Image

1 Warhead Fragmentation
recovered suggests
warhead detonation
may have occurred.

2 Advanced guidance Mounting plate for

system inertial navigation
system (INS). Not seen
on SCUD-C.
Arrows used to identify
the direction of
component mounting.

2 Advanced guidance Relay unit (may be

system common to SCUD-C)

__________________
22
The Panel has a comprehensive set of imagery of the remnants of three of the four SRBM strikes covered in this
annex. Only those that illustrate a design feature difference between the SCUD -C / Hwasong-6 and the Borkan-2H have
been included.
23
Cross references to serial number in table 36.3.
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Serial 23 Component Remarks Image

2 Advanced guidance Relay unit (Panel

system removed cover)

2 Advanced guidance Relay unit. Contains

system printed circuit board
(PCB) marked SHIG
6081.
The Panel believes
SHIG is the
abbreviation for the
Shahid Hemat
Industrial Group. It is a
subsidiary of the
Iranian Aerospace
Industries Organization.

2 Advanced guidance Three-point mounting

system plate for inertial
measurement unit
(IMU).

2 Advanced guidance Reverse of three-point

system mounting plate for
IMU.
Similar in design to that
of a IMU used on larger
Iranian rockets.

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Serial 23 Component Remarks Image

2 Advanced guidance Open source 24 image of

system IMU mounting plate
used on larger Iranian
rockets.
Shows very similar
mounting plate design.

3B Aluminium alloy 1.8mm

airframe

3C Oxidiser tanks Oxidiser tank.

forward Tanks join just to right
of the “H”.

3C Oxidiser tank Oxidiser Vent Valve

forward

__________________
24
Supplied by confidential source.
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Serial 23 Component Remarks Image

3D Horizontal filling
capability pipe

3E Internal reinforcing
aluminium alloy ribs

3F Factory quality Factory weld on left

welding and artisanal weld on
right.

3G Artisan welding Artisanal welding used

to join main sections of
missile together.

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Serial 23 Component Remarks Image

3H Artisan welding Note factory quality

weld at right angles to
artisanal weld.

4A Rocket Motor Further analysis

required to identify any
differences from
SCUD-C rocket motor.

4B Jet vane housing for Metallurgical

internal graphite examination of the
control vanes graphite may provide
more evidence of
manufacturer. Three
were recovered.

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Serial 23 Component Remarks Image

4C Composite Identical in size,

compressed air material and shape to
bottles the ones recovered
from the 26 July 2017
Yanbu Borkan-2H. 25

4D Stabiliser fins No remnants identified.

__________________
25
Similar composite air bottles were recovered from the SRBM remnants of the 26 July 2017 Ta ’if attack, from which
the manufacturer was identified. The response from the manufacturer to a Panel tracing request for this component
included a comment that the component was mass-produced and no serial numbers were allocated.
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Appendix B to Annex 36: Imagery supporting technical analysis from 22 July 2017 Yanbu Borkan-2H

Table B.36.1
Imagery design characteristics of SCUD-C/Hwasong-6 SRBM versus Borkan-2H SRBM 26

Serial 27 Component Remarks Image

3B Aluminium alloy 1.8mm

airframe

3D Fuel tank to rear Fuel Valve.

Note use of yellow
paint, a common
identifier for fuel ports.

3E Horizontal filling
capability pipe

__________________
26
The Panel has a comprehensive set of imagery of the remnants of the three of the four SRBM strikes covered in this
annex. Only those that illustrate a design feature difference between th e SCUD-C / Hwasong-6 and the Borkan-2H have
been included.
27
Cross references to serial number in table 36.4.
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Serial 27 Component Remarks Image

3F Internal reinforcing
aluminium alloy ribs

3F Artisan welding Artisanal welding used

to join main sections of
missile together.
Rust was evident on the
artisanal welding on
remnants of the Yanbu
SRBM that was
recovered from water
by the Saudi
authorities, whilst the
factory welds on the
same remnant were rust
free.

4A Rocket Motor Remnants of propellant

supply piping visible.

4B Composite Damaged but

compressed air recognisable as
bottles composite air bottles.

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Appendix C to Annex 36: Comparison of layout of filling, drainage and pressure valves for SCUD-C type
SRBM and the Borkan-2H

1. The schematic at figure C.36.1 of the SCUD-C type SRBM design is based on a wide range of
both open and confidential sources.

Figure C.36.1
Schematic of SCUD-C type SRBM design 28

Table C.36.1
Layout of filling, drainage and pressure valves for SCUD-C type 29

Valve
Number Component Remarks

1 Fuel Filling Valve (FFV) Position is at forward end of fuel tank, meaning the SRBM can
only be fuelled efficiently to maximum capacity when in the
vertical launch position.
2 Fuel Drainage Valve (FDV)
3 Oxidiser Filling Valve (OFV)
4 Oxidiser Drainage Valve
(ODV)

2. The Panel has compiled the illustration at figure C.36.2 from their examination of the remnants of
both the 22 July 2017 Yanbu ER-SRBM and the 4 November 2017 Riyadh ER-SRBM. The triconic warhead
is for illustrative purposes only, as the shape could not be defined from recovered fragments. It is included
as all open source imagery shows the Qiam-1 with a triconic warhead.

__________________
28
Panel diagram. Not to scale. Valves are shown larger proportionally than on real missile to assist in identification.
29
The section is still under Panel analysis.
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Figure C.36.2
Schematic of Borkan-2H ER-SRBM design 30

Table C.36.2
Layout of filling, drainage and pressure valves for Borkan-2H ER-SRBM design 31

Valve
Number Component Marking on missile 32 Image

1 Oxidiser Valve
(Probable Filling and Drainage)
(4 November 2017 ER-SRBM)

2 Oxidiser Filling and Drainage Valve FILLING DRAIN-O

(4 November 2017 ER-SRBM)

3 Oxidiser Valve
(Probable Pressure Relief Valve)
(4 November 2017 ER-SRBM)
4 Oxidiser Filling and Drainage Valve FILLING DRAIN-O
(4 November 2017 ER-SRBM)

__________________
30
Panel diagram. Not to scale. Valves are shown larger proportionally than on real missile to assist in identification.
31
The section is still under Panel analysis.
32
All the markings were in English.
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Valve
Number Component Marking on missile 32 Image
5 Oxidiser Valve VENT-O
(Probable Pressure Relief Valve)
(4 November 2017 ER-SRBM)
6 Oxidiser related Valve
(4 November 2017 ER-SRBM)

7 TBC

8 Fuel Vent Valve VENT-F

(22 July 2017 ER-SRBM)

9 Fuel Filling and Drainage Valve FILLING DRAIN-F

(22 July 2017 ER-SRBM)

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Appendix D to Annex 36: Suspect process equipment for liquid bi-propellant oxidizer

1. A consignment of components was captured by UAE forces operating near Mar ’ib in Yemen during
January 2017. Imagery was made available by the UAE for Panel analysis.

2. The consignment contained individual items of process equipment, such as pumps, tanks, drums
and vessels, some of which appear to be of specific design for particular purposes:

(a) A stainless-steel vessel housing with two mixing impellers (figures C.36.1 and C.36.2);

(b) A large mixing or transfer vessel (figures C.36.3 and C.36.4);

(c) A horizontal vessel with a dished (and hinged) end-piece that is rated for elevated
temperatures and pressures, which appears to be fitted with particular level instrumentation, and
has a pressure relief valve (figures C.36.5, C.36.6 and C.36.7);

(d) A heating vessel (figure C.36.8); and

(e) Two vessels (figures C.36.9 and C.36.10), which are virtually identical in design,
configuration and size to the liquid bi-propellant oxidiser storage tanks known to be used for the
SCUD missile system (figures C.36.11 and C.36.12 for comparison).

3. The consignment also contained the conventional electrical equipment such as switchgear, control
panels, electrical cabinets, drives and motors, cabling and instrumentation necessary to provide the power
and control systems. There is some labelling in Farsi, suggesting Iranian origin.

4. Although most of the equipment can be considered standard for the chemical, food or similar
industries, some items show artisanal crafting such as unusual welding connectors (pipelines and fla nges)
and other improvised engineering features. This confirms adaptation for a purpose other than initially
designed for.

Figure D.36.1 Figure D.36.2

Mixing impellers 33 Mixing impellers

__________________
33
Imagery courtesy of a Member State and confidential sources.
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Figure D.36.3 Figure D.36.4

Storage or transfer vessel Storage or transfer vessel

Figure D.36.5 Figure D.36.6

Pressure vessel Pressure vessel

Figure D.36.7 Figure D.36.8

Pressure vessel Heating vessel

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Figure D.36.9 Figure D.36.10

Field storage tanks for liquid bi-propellant Field storage tanks for liquid bi-propellant
oxidiser oxidiser

Figure D.36.11 Figure D.36.12

Liquid bi-propellant oxidiser field storage Liquid bi-propellant oxidiser field storage tank 35
tank 34

__________________
34
Stored at Gharyan Air Defence base, Libya (2017). Confidential source.
35
http://www.gulflink.osd.mil/envs/scud_irfna.htm.
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144/329

Table D.36.1
Origin and destination of mixing unit components

Manufacturer Supplied to
Serial / Lot number OR Country /
Serial Component Markings Company Country / entity Date Company entity

1 Component TGC-63X 150-S RKV0604001 Ningbo Sono China Not supplied

Manufacturing directly to
Company (STNC) Yemen
2 Model YS90S@ Light Duty S/N 14040993 Tianjin Electromotor China Company
Multi-Stage Pump Company (Steam) 1 merged and not
manufacturing
3 Compact NSX 100B Surge 15/14 GNVAK Schneider Electric France
Protective Device Industries SAS 2
4 M3KP 224 SMb 4 Motor S/N E856237200 Probably counterfeit
ABB Oy Motors 3
5 Hydraulic Pump VDE05Z0 Hanning Electro- Germany Not traced
Werke GmbH 4
6 PM80 Pump V-109 Pentax Industries Italy 2013 Inconclusive
SPA 5
7 120000UF 15V Capacitor 5796393 Phillips NV 6 Netherlands
8 PU 12x8 Pneumatic Hose W3B4L097 Jisehan Hosetech, Republic of Feb 2015 Noavar Hava Iran
Tanhay Corporation 7 Korea Limited 8

__________________
1
http://www.steampumps.com.
2
http://www.schnieder-electric.com.
3
http://www.abb.com. The company has informed the Panel that the recovered motor was a fake.
4 http://www.hanning-hew.de.
5
http://www.pentax-pumps.it.
6
http://www.phillips.com.
18-00267

7
http://www.tanhay.com.
8
http://noavarhava.com/.
 18-00267

Manufacturer Supplied to
Serial / Lot number OR Country /
Serial Component Markings Company Country / entity Date Company entity

9 Transformer JS90565-1 Alfa Technic Limited Iran

10 Moulded Case Circuit Breaker Pars Fanal 9
Iran Alfa Technic Iran
Limited
11 ECT 8472 Industrial Pressure 513487-046 Trafag AG Member Aug 2014 Noran Sanat Iran
Transmitter State Daryaye
Chalous
Company 10
12 Solenoid Valves Models AirTac International Entity
4V21008 and 4V110-15 Group 11
13 Hydraulic Unit 0729212 Hid-Tek Limited 12 Turkey May 2015 Araz Fakhr Azar Iran
Limited
Company 13
14 L404F ‘Pressuretrol’ Controller 97-3667D Honeywell USA
L404F 1102 3 Incorporated 14
15 KBR-14 Pressure Gauges 15 Apr 22 KBR Incorporated 15 USA
15 Apr 23
DN25PN16
16 Series 150SJ Low Water Cut- 160J ITT McDonnell and USA
Off/Pump Generator Miller 16

__________________
9
www.parsfanal.com.
10
257 South Lalehazar Street, 11447, Tehran, Iran.
11
http://en2.airtac.com/us.aspx?c_kind=6andc_kind2=141.
12
http://www.hid-tek.com.tr.
13 http://www.arazfakhrazar.com.

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14
http://www.honeywell.com.
145/329

15
http://www.kbr.com.
16
www.xylem.com. ITT is a subsidiary company.
S/2018/68

Figure D.36.13
Supply chain diagram

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6. The following images are of equipment and components for the tracing requests listed in
table C.36.1 above.

Figure D.36.14 Figure D.36.15

Component TGC-63X 150-S Model YS90S@ Light Duty Multi-Stage Pump

Figure D.36.16 Figure D.36.17

Compact NSX 100B Surge Protective M3KP 224 SMb 4 Motor
Device

Figure D.36.18 Figure D.36.19

Hydraulic Pump 120000UF 15V Capacitor

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Figure D.36.20 Figure D.36.21

PU 12x8 Pneumatic Hose Transformer
(Traced: KR > IR) (Traced: Manufactured in IR)

Figure D.36.22 Figure D.36.23

Moulded Case Circuit Breaker ECT 8472 Industrial Pressure Transmitter
(Traced: Manufactured in IR) (Traced: Member State > IR)

Figure D.36.24 Figure D.36.25

Solenoid Valves Models 4V210-08 / 4V110- Hydraulic Unit
15 (Traced: TR > IR)
(Partial Traced: > IR)

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Figure D.36.26 Figure D.36.27

‘Pressuretrol’ Controller KBR-14 Pressure Gauges

Figure D.36.28
Series 150SJ Low Water Cut-Off/Pump
Generator

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Appendix E to Annex 36: Response of Islamic Republic of Iran

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Annex 37: Reported UAV attacks on UAE forces in Yemen (2016 - 2017)

1. The UAE have reported eleven attacks against their ground forces by attack UAVs and one crashed
UAV (table 37.1) to the Panel. 1

Table 37.1
UAV attacks against UAE ground forces

Serial Date Time (GMT) Location Remarks

1 19 Sep Sharurah, Ma’rib Crashed UAV

2016 (Serial Number: 22-17-28)
(See annex 38)
2 1 Dec 2016 17:17 Ma’rib
3 1 Dec 2106 17:50 Ma’rib
4 1 Dec 2016 18:20 Ma’rib
5 3 Dec 2016 09:46 Ma’rib
6 13 Dec 19:20 Ma’rib
2016
7 13 Dec 20:00 Ma’rib
2016
8 2 Jan 2017 17:17 Al Mandab
9 7 Jan 2017 18:20 Al Mandab
10 8 Jan 2017 23:15 Al Mandab
11 9 Jan 2017 00:50 Ma’rib
12 17 Jan 2017 20:20 Al Mandab

2. On 19 September 2016 a Qasef-1 UAV, launched from Sana’a airport area, crashed in the Sharurah
Area near Ma’rib governorate. The UAV had travelled for approximately 100km at an average flight speed
of 150kph for 40 minutes (figure 37.1).

Figure 37.1
UAV Track (19 September 2016)2

__________________
1
Letter to Panel on 26 January 2017 from Permanent Mission.
2
Panel diagram based on a Member State’s information.
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Annex 38: Houthi-Saleh ‘Qasef-1’ unmanned aerial vehicles (UAV)

A. Seizures
1. On 27 November 2016, a Dubai registered truck (Dubai/13933) was intercepted at the Almeel
checkpoint near Ma’rib and was found to contain components for at least six complete Qasef-1 UAV and
some components for up to another 24 UAV. 1 Components were also recovered by UAE forces from crashed
UAV in Ma’rib (19 September 2016) 2 and Aden Airport (16 November 2016). 3

2. The medium sized Qasef-1 (Striker-1) UAV (figures 38.1 and 38.2) is virtually identical in design
and capability to that of the Ababil-T 4 UAV (figures 38.3 and 38.4) manufactured by the Iran Aircraft
Manufacturing Industries (HESA). 5 The Ababil-T is a short to medium range attack UAV with the
capability of delivering a 30 to 45kg warhead up to 150km.

Figure 38.1 Figure 38.2

Houthi image of UAV Qasef 1 (Striker 1) 6 Crashed UAV Qasef 1 7

Figure 38.3 Figure 38.4

Iranian Ababil-T UAV 8 Iranian Ababil-T UAV 9

B. Design and manufacture standards

5. The design and manufacture standards for the Qasef-1 UAV are not of a high quality. Table 38.1
summarises some of these issues.

__________________
1
Letter from Member State. Including Qasef-1 Serial Numbers 22-122-33, 22-122-34, 22-122-38, 22-1721-39, 22-1721-
?, 22,1721-0 and 22-1722-9.
2
Letter from Member State. Qasef-1 Serial Numbers 22-1728.
3
Qasef-1 Serial Numbers 22-122-39.
4
Source. Identified from Janes’ www.janes.his.com database.
5
HESA is a subsidiary of the government owned Iran Aircraft Industries Organization (AIO), located in Isfahan, Iran.
AIO is itself part of the Defence Industries Organization (DIO) conglomerate.
6
Sources. 1) https://mobile.almasdarnews.com/article/photos-hourhis-reveal-new-types-surveillance-attack-drones; and
2) https://www.youtube.com/watch?feature=youtu.beandv=YfsV6C4W8b4andapp=desktop (at 29 – 41 seconds).
7
Source. Conflict Armament Research. Other information also derived from, or cross checked with, Conflict Armament
Research, Iranian Technology Transfers to Iran, March 2017. http://www.conflictarm.com/download-
file/?report_id=2465andfile_id=246.
8
Image courtesy of Janes’ www.janes.his.com database.
9
Ibid.
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Table 38.1
Qasef-1 UAV design issues

Serial Component / Issue Comment Operational limitation

1 Li-Ion Battery Only one battery is fitted to There is no built-in

the UAV. It powers the redundancy, so a battery failure
servos for the ailerons and will lead to immediate flight
the GPS. termination.
2 DC Output Converter This is fitted to step down
the voltage from 11.1V for
the aileron servos to 3V for
the GPS.
3 Circuit Boards Silicone has been used as a This may melt at high operating
form of crude insulation. temperatures leading to
electrical failures.
4 Circuit Boards Metal bolts have been used These may cause short circuits
to secure the circuit boards and electrical failures.
to the UAV.
5 Li-Ion Battery Wrapped in red tape. There is no rationale for this,
(2,680mAh) other than possibly to try and
disguise manufacturer and
hence source.
6 GPS GPS is the sole means of Once the UAV reaches the
inputting target data. target the GPS will switch off
the power and the UAV will
“glide” to the target. Target
accuracy can thus only be
within +/- 25m, dependent on
the cruising altitude set by the
operator. It is not a precision
weapon.

C. Tracing and sources

6. The Panel initiated tracing requests for those components that had markings in order to identify
the manufacturer and supply chain for the Qasef-1 UAV (see summary and diagram at appendix A).

7. One component, the Titanium Gear Servo HS-7955TC, was traced from the manufacturer to Tehran
Hobby 10 in Iran. The payment was made by Succor Trading through Emirates Islamic Bank (account
number: 370XXXXXX6102). The component was supplied to Tehran Hobby limited in mid -2015,
subsequent to the implementation of the targeted arms embargo on 14 April 2015.

8. One component, the DC Output Converter, was traced from the manufacturer to Arman Optimized
Systems 11 in Iran. Initially Arman Optimized Systems paid for the components from an Iranian Bank and

__________________
10
Tehran Hobby, Eastern Suite, 1st Floor, No.1 Espinas Building, Mirzababaei Blvd, Pounak Square, Tehran,
Iran. http://tehranhobby.com/.
11
Arman Optimized Systems, 5 th Floor, 111 Ebne Yamin Street, North Sohrevardi Avenue, Tehran, Iran. +98 21 8850
1327. Source: Confidential.
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components were delivered directly, but commencing in August 2015 the company requested delivery to a
logistics company 12 in Hong Kong and payment was made from a Hong Kong bank. 13

9. The Panel has also identified that in 2012 another component type, the L78 Voltage regulator, w as
supplied by the manufacturer to one of three other companies in China. The subsequent movement of this
component could not be traced.

10. A Model V-10 Gyroscope is identical in design to one recovered from an Iranian manufactured
Ababil-3 UAV in Iraq. The serial number of one of the Qasef-1 V-10 gyroscopes is a 4-digit serial number
(S/N 2218) and only 83 serial numbers different from the Ababil -3 UAV (S/N 2301) recovered in Iran.
These both very possibly being from the same source. 14

D. Panel findings

11. The components necessary to assemble Ababil-T UAV have been supplied to the Houthi-Saleh
alliance. Although Houthi-aligned media announced that the Sana’a-based ministry of defence
manufactured the UAV, in reality they are assembled from components supp lied by an outside source and
shipped into Yemen.

12. The Panel finds that, based on: 1) the design, dimensions and characteristics of the UAV; and 2)
the identification and tracing of component parts, the material necessary to assemble the Qasef -1 UAVs,
emanated from Iran. The assembled UAV are then virtually identical to the ABABIL -T manufactured by
the Iran Aircraft Manufacturing Industries (HESA). 15 The Panel finds that the Ababil-T UAV has been
designed and produced specifically for the military purpose s of remote explosive attack or ISTAR.

13. The Panel finds that as the Islamic Republic of Iran has not provided any information to the Panel
of any change of custody of the Qasef-1 or the components, the Islamic Republic of Iran is in non-
compliance with paragraph 14 of resolution 2216 (2015) in that it failed to take the necessary measures to
prevent the direct or indirect supply, sale or transfer of military related equipment to the Houthi -Saleh
forces, an entity acting at the direction of listed individuals.

__________________
12
Part supplied via Turn Key International Logistics Company Limited, Flat D. G/F Roxy Industrial Centre, 41 – 49
Kwai Cheong Road, Hong Kong, China. +852 9219 8927 / +852 6382 1975. Source: Confidential.
13
Industrial and Commercial Bank of China (Asia) Limited, Hong Kong, China. (SWIFT: UBHKHKHH). Account
Number: 86XXXXXX4237. Account Name: Ginseng Global Company Limited.
14
Iranian Technology Transfers to Yemen, Conflict Armament Research Limited, London, March 2017.
15
HESA is a subsidiary of the government owned Iran Aircraft Industries Organization (AIO), located in Isfahan, Iran.
AIO is itself part of the Defence Industries Organization (DIO) con glomerate.
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Appendix A to Annex 38: QASEF-1 component tracing

Table A.38.1
Origin and destination of UAV components

Manufacturer Supplied to
Serial / Lot Image Country / Country /
Ser Component number reference 16 Company entity Date Company entity

1 Sail Propeller Y-A IMG_2997 Sail Aviation China No response to

22x18 Propeller 17 tracing request
2 Titanium Gear IMG_2998 Hitec 18 Republic of Mid 2015 Tehran Hobby Iran
Servo HS-7955TC Korea Limited 19
3 DC Output IMG_3029 Minmax Entity Post Aug 2015 Arman Optimised Iran
Converter MIW Systems 20
3021
4 NAVIOR Satellite 58013428 IMG_3028 NAVIS Ukraine 2009 Anshuai India
Compass NAVIS Ukraine 21 Electronics 22
NC144_02
5 Voltage Regulator L78 P2020160 ST Member State 2002 WT Hong Kong,
Microelectroni Microelectronics, 23 China
cs Willas-Array
Electronics, 24 or Hong Kong,
Selcom China
Electronics 25
6 DLE-111 Petrol IMG_2995 Mile Hao Xing China Company claims a
Engine Technology counterfeit
Company 26
7 Full Duplex Multi- FKAR-D94- IMG_3009 Not identified
Frequency Data 1018
Link
8 Li-Ion Battery 2212230 IMG_3006 Not identified
9 Vertical Gyroscopes 1233, 1768, IMG_3047 Not identified S/N 2301 seen on
V10 2076, 2099, an Iranian Ababil-
2109, 2216 3 recovered in
and 2218 Iraq

__________________
16
Sources: Conflict Armament Research and Confidential Sources. Images at appendix 2.
17
Sail Aviation Propeller, Audio Supplies Company Limited, Kaiyuan City, Liaoning Province, China. Email:
mailto:2284001479@qq.com.
18
HITEC RCD Korea, Ochang, Cheongwon-gun, Chungcheongbuk-do, Republic of Korea.
http://www.hitecrcd.co.kr/new/. Possibly manufactured in China though by Hitec-Multiplex China Incorporated, 3F of
Hong Li Building 1, 24W Jinfeng Road, Jindig Industrial Park, Tanglia, Zhuhai, China. http://www.hitecrcd-china.com.
19
Tehran Hobby, Eastern Suite, 1st Floor, No.1 Espinas Building, Mirzababaei Blv d, Pounak Square, Tehran,
Iran. http://tehranhobby.com/.
20
Arman Optimized Systems, 5 th Floor, 111 Ebne Yamin Street, North Sohrevardi Avenue, Tehran, Iran. +98 21 8850
1327. Part supplied via Turn Key International Logistics Company Limited, Flat D. G/F Roxy Industrial Centre, 41 –
49 Kwai Cheong Road, Hong Kong, China. +852 9219 8927.
21
NAVIS Ukraine LLC, Smela Street, Mazur 14, Cherkasy Region, Ukraine 20704. http://www.navis-ukraine.com.ua.
22
Anshuai Electronics, Plot 21, Venkateshwara Colony, Ecil Post, Hydrabad – 500062, Andhra Pradesh, India. Although
NAVIS state they supplied to Anshuai, this company states they did not receive that particular serial number. Pan el
investigations continue.
23
WT Microelectronics Limited, Lot 3719, H DD 104, Hong Kong, China. http://www.wtmec.com/WT/?lang=en.
24
Willis-Array Electronics, 24/F, Wyler Centre, Phase 2, 200 Tai Lin Pai Road, Kwai Chung, New Territories, Hong
Kong, China. http://www.willas-array.com/index.php?lang=en.
25
Selcom Group S.p.A.,Via A. Grandi, 5 , 40013 Castel Maggiore (BO), Italy. Manufactured by Selcom Electronics
Limited, A7/A24 Workshop, No 5399, Waiqingsong Road, Waiqingsong H, Shanghai, 201707, China.
http://www.selcomgroup.com/contacts/.
26
Mile Hao Xiang Technology Co. Ltd, located in the Chinese Yunnan Honghe Hani Autonomous Prefecture of
Maitreya. (http://www.dlengine.com).
18-00267 157/329
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Figure A.38.1
Supply chain diagram

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Appendix B to Annex 38: QASEF-1 component imagery 27

Figure B.38.1 Figure B.38.2

IMG-2997: Sail Propeller IMG-2998: Titanium Gear Servo HS-7955TC

Figure B.38.3 Figure B.38.4

IMG-3029: DC Output Converter MIW IMG-3028 NAVIOR Satellite Compass NAVIS
3021 NC144_02

Figure B.38.5 Figure B.38.6

P2020160: L78 Voltage Regulator IMG-2995: DLE-111 Petrol Engine

__________________
27
Imagery from Conflict Armament Research.
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Figure B.38.7 Figure B.38.8

IMG-3009: Full Duplex Multi-Frequency IMG-3006: Li-Ion Battery
Data Link

Figure B.38.9 Figure B.38.10

IMG-3047: Vertical Gyroscope V10 IMG-3053: Li-Ion Battery Unknown Make

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Annex 39: Houthi-Saleh ‘Rased’ unmanned aerial vehicles (UAV)

A. Seizures

1. The Saudi Arabia-led coalition has seized a number of crashed or downed ‘Rased’ UAV in 2017; 1) Nihm
(25 March 2017); 2) Sana’a (20 September 2017); and Kirsh, Lahij (20 September 2017) (see figures 39.1 to 39.3).1

Figure 39.1 Figure 39.2

Downed ‘Rased’ UAV Downed ‘Rased’ UAV
Nihm (25 March 2017) Sana’a (20 September 2017)

Figure 39.3
Downed ‘Rased’ UAV
Kirsch, Lahij (20 September 2017)

B. Design

2. The Panel is almost certain that the ‘Rased” UAV is actually the commercially available
Skywalker-8 manufactured by Skywalker Technology Limited of China ( www.skywalker-model.com). The
common design and characteristics between the two UAV are shown at figures 39.4 and 39.5.

__________________
1
Twitter: @JoshuaKoontz_1.
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Figure 39.4
‘Rased’ v Skywalker-8 type indicators 1

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Figure 39.5
‘Rased’ v Skywalker-8 type indicators 2

3. Dimensional analysis by photogrammetry provides a further indicator that the two UAV are the
same. Photogrammetry was used to estimate the dimensions of an X-8 Skywalker to compare it to the
declared Houthi dimensions (figure 39.6). The Houthi declared di mensions of a wingspan of 2.2m and a
length of 1.0m. Photogrammetry derived dimensions of an X -8 Skywalker produce a wing span tip to tip
of 2.24m and a length from nose tip to rear of wing tip of 1.1m. When allowing for error due to parallax
these are virtually identical to the Houthi declared data.

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Figure 39.6
‘Rased’ versus Skywalker-8 type dimensional analysis by photogrammetry

KNOWN OBJECT PHOTOGRAMMETRY Image 20150711101811-3964.jpg

Known Dimensions mm On Screen Scale

X-8 Wing Span (Foil) 2122 270 0.1272

Estimated Dimensions mm On Screen Scale

Wing Span (Tips) 2240 285 0.1272

KNOWN OBJECT PHOTOGRAMMETRY Image 20150711101844-9760.jpeg

Known Dimensions mm On Screen Scale

Main Body Length 790 80 0.1013

Estimated Dimensions mm On Screen Scale

Length (Nose to Tail) 1086 110 0.1013

C. Supply options
4. The X-8 Skywalker is widely available commercially (see table 39.1). The Panel has also identified
that the X-8 Skywalker is unique in its design, and that no other comparable UAV is available in commercial
markets.

Table 39.1
Commercial availability of Skywalker X-8

Ser Company Country Remarks

1 Airelectronics 2 Spain
2 Aerosystems West 3
USA
3 Banggood 4 China (Hong Kong) Shipped from Hong Kong, China
4 DH Gate.com 5
Global Shipped direct from China
5 E-Bay 6
UK Shipped direct from Hong Kong, China
6 Flitetest.com 7
USA Reviewed by USA consumer

__________________
2
http://www.airelectronics.es/products/solutions/x8/.
3
https://www.aerosystemswest.com/product-page/skywalker-x8-flying-wing.
4
https://www.banggood.com/es/Skywalker-X8-X-8-Black-White-FPV-Flying-Wing-2122mm-EPO-RC-Airplane-KIT-p-
1104501.html?utm_source=googleandutm_medium=cpc_odsandutm_content=anaandutm_campaign=es -Splan-ds-feed-
planeandgclid=EAIaIQobChMI9LH7hPvW1gIV7rvtCh3wtAiYEA AYASAAEgLVpvD_BwE.
5
https://www.dhgate.com/uk/skywalker-x8-uk.html.
6
http://www.ebay.co.uk/itm/SkyWalker-2120mm-X8-RC-Plane-White-KIT-No-Electronics-/171816307772.
7
https://www.flitetest.com/articles/skywalker-x-8.
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Ser Company Country Remarks

7 FPVModel.com 8
China Shipped direct from China.
8 Porcupine RC 9 USA Shipped direct from Hong Kong, China
9 UAV Systems USA Sold as part of a full UAV surveillance system in USA
International 10
10 UuuStore.com 11 China Shipped direct from China.

__________________
8
https://www.fpvmodel.com/skywalker-white-x8-airplane-fpv-flying-wing_g27.html.
9
http://www.porcupinerc.com/SkyWalker-2120mm-X8-FPV-RC-Plane-KIT-Black-No-Electronics_p_534.html.
10
http://www.uavsystemsinternational.com/product/x8-long-range-surveillance-drone/.
11
http://www.uuustore.com/skywalker-x8-epo-white-uav-flying-wing-2120mm-big-fpv-necessary-airplane-p-1830.html.
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166/329

Annex 40: Chronology of reported sea mine incidents in Red Sea (2017)
Table 40.1
Summary of sea mines warnings, seizures or deployments (2017 to date)

Ser Date Mine Type Incident type Location near Geo-location Remarks

1 Nov 2016 Improvised Find Hudaydah Reported to Panel by a confidential

source.
2 4 Feb 2017 Not Known Threat Mukha US MARAD 1 warns of sea mines near
entrance to Mukha harbour. 2
3 7 Mar 2017 Improvised Explosion Hudaydah 13 016.64’N Mine strike against A54 Qatari launch.
,
43 010.96’E
4 7 Mar 2017 Not Known Explosion Mukha 13 013.00’N Mine strike against the Yemen
, Coastguard vessel, YN Safwan al-
43 013.50’E Ozavbi. 3
5 23 Mar 2017 Improvised Find, Rendered Midi 16 015.00’N Recovered off beach.
Safe ,
42 048.00’E
6 25 Mar 2017 Improvised Detonated during Hudaydah 16 020.48’N Mine detonated when attempt made by
Render Safe , private maritime security team to detach
Procedure (RSP) 42 045.01’E electrical conductor to isolate the
detonator.
7 25 Mar 2017 Improvised Find, Rendered Mukha 13 020.00’N
Safe ,
43 014.00’E
8 15 Apr 2017 Improvised x Find, Rendered 16 020.38’N One detonated during tow to disposal
4 Safe , site.
42 045.39’E
9 15 Apr 2017 Improvised Find, Rendered 16 020.43’N Detonated during tow to disposal site.
Safe ,
42 044.35’E
10 24 Apr 2017 Improvised Detonated during Location not provided.
Render Safe
Procedure (RSP)
__________________
1
Maritime Administration (United States Department of Transport).
18-00267

2
https://www.marad.dot.gov/msci/alert/2017/22863/.
3
Also reported by MARAD. https://www.marad.dot.gov/msci/alert/2017/23275/.
 18-00267

Ser Date Mine Type Incident type Location near Geo-location Remarks

11 30 Apr 2017 Improvised Detonated during 16 019.82’N

Render Safe ,
Procedure (RSP) 42 045.90’E

12 1 May 2017 Not Known Explosion Hudaydah 16 015.00’N Reported to have being detonated by
, local fishermen.
42 048.00’E
13 27 May 2017 Improvised x Find, Rendered Thwaq 16 018.37’N Reported to Committee by Saudi Arabia
2 Safe Island 4 , on 30 September 2017.
42 045.94’E
14 5 Jun 2017 Improvised Find, Rendered 13 019.26’N
Safe ,
43 010.09’E
15 5 Jun 2017 Improvised Find, Rendered 13 019.35’N
Safe ,
43 010.07’E
16 6 Jun 2017 Improvised Find, Rendered 13 019.17’N
Safe by ,
demolition 43 009.87’E

17 6 Jun 2017 Improvised Find, Rendered 13 018.56’N

Safe ,
40 039.93’E
18 6 Jun 2017 Improvised Find, Rendered 13 018.39’N
Safe ,
43 009.21’E
19 7 Jun 2017 Improvised Find, Rendered 13 019.43’N
Safe by ,
demolition 43 009.78’E

20 7 Jun 2017 Improvised Find, Rendered 13 019.90’N

Safe ,
43 009.80’E
21 7 Jun 2017 Improvised Find, Rendered 13 019.54’N
Safe ,
43 009.63’E
22 7 Jun 2017 Improvised x Find, Rendered 16 020.44’N
2 Safe ,
42 044.75’E

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167/329

__________________
4
16°18'42.61"N, 42°41'10.77"E.
 S/2018/68
168/329

Ser Date Mine Type Incident type Location near Geo-location Remarks

23 8 Jun 2017 Improvised Find, Rendered 13 018.62’N

Safe by ,
demolition 43 009.47’E

24 8 Jun 2017 Improvised Find, Rendered 13 018.21’N

Safe by ,
demolition 43 009.35’E

25 8 Jun 2017 Improvised Find, Rendered 13 019.08’N

Safe by ,
demolition 43 009.80’E

26 8 Jun 2017 Improvised Find, Rendered 13 019.55’N

Safe ,
43 009.63’E
27 8 Jun 2017 Improvised Find, Rendered 13 019.50’N
Safe ,
43 009.73’E
28 10 Jul 2017 1x Find Midi 16 015.00’N Reported to be recovered South-West of
Improvised , Port and rendered safe by Yemeni
42 047.00’E military.
29 14 Sep 2017 Improvised Find Ghurab Unconfirmed media reports.
Island
30 20 Sep 2017 Improvised Find, Rendered 16 016.56’N
Safe ,
42 045.36’E
31 25 Sep 2017 Improvised Detonated during 16 016.56’N
Render Safe ,
Procedure (RSP) 42 045.52’E

32 25 Sep 2017 Improvised Detonated during 16 016.05’N

Render Safe ,
Procedure (RSP) 42 045.45’E

33 25 Sep 2017 Improvised Find, Rendered 16 017.01’N Detonated during tow to disposal site.
Safe ,
42 043.97’E
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Annex 41: Analysis of improvised sea mines

A. Threat

1. Sea mines are low cost, easy to deploy, tactically very effective, difficult to detect and thus are a potent
threat to both naval and commercial vessels. Relatively small quantities present a threat out of proportion to their
numbers. The now confirmed possession, and probable use in the Red Sea area of sea mines by Houthi-Saleh forces
adds another dimension to the maritime security environment. The deployment of these improvised sea mines now
threatens the delivery of humanitarian assistance should they drift into the vital sea lines of communication (SLOC)
or the approaches to the Red Sea ports. There is also the possibility of a merchant vessel being struck by a sea mine
due to the volume of traffic and relatively constrained area of the Red Sea. The spatial density (mines/nm2) of these
sea mines will be a major contributory factor as to whether a vessel is hit. The last time when sea mines were sown
in the Red Sea was 1984 resulting in 19 vessels being struck over a period of months. Only a single mine was
detected, disarmed and recovered.1

2. The direction of drift of any sea mines within the Red Sea is seasonally dependent. From May to
November 2017 the mines will have drifted down the Red Sea until they join the predominantly Southern summer
current and reach the Strait of Bab al-Mandab, or drift ashore back on the Yemeni coast or coastal islands (as
indicated by the recovery from Thwaq Island). It is possible that they will then drift through the Strait of Bab al-
Mandab into the Eastern Indian Ocean.

3. In November 2017 the currents changed direction. Any remaining improvised sea mines will continue to
drift down the coast with the Eastern Boundary Current until they reach Mukha and the Strait of Bab al-Mandab,
where they will be drawn into the predominantly Northern winter current, reverse direction and drift up the central
channel of the Red Sea near or in the major shipping lanes towards the Suez Canal area (figure 41.1).

Figure 41.1
Seasonal sea mine drift in Red Sea 2

B. Technical analysis
4. The recovered improvised sea mines are similar in design and concept to mid-20th century sea mines.
They are locally manufactured and contain approximately 21 kg of high explosive. Table 41.1 contains data on the
mine design and dimensions.

__________________
1
www.washingtonpost.com/archive/politics/1984/09/18/british-moving-possible-mine-from-red-sea/a5f41b34-8f7b-
4fa3-990c-dc1dee3648c6/?utm_term=.9a199f7b0232 and www.csmonitor.com/1984/0808/080817.html.
2
Information on seasonal currents from http://www.hisutton.com/Houthi_mines_in_Red_Sea.html .
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Table 41.1
Design and dimensions of Houthi-Saleh improvised sea mines

Ser Area Data Remarks

1 Dimensions 0.72m (L) x 0.397m (D)

2 Initiation system 4 x Contact Horns
(switch)
3 Initiator Commercial electric detonator
4 Booster explosive RDX (0.7kg) Probably harvested military
charge explosive from abandoned
explosive ordnance (AXO)
5 Main explosive charge Ammonium Nitrate / Aluminium Improvised Ammonal
(20.3kg) Velocity of Detonation =
4,000m/s+
6 Power Source 16 x AA Batteries
7 Container type Ferrous cylinder

5. The “Thwaq” mines were reported as being of sound construction, with a degree of standardization
between the mines, which includes quick connecters to the wiring harness. The mines are assessed as being
watertight, meaning that it should not be expected that they would leak and subsequently sink.

6. There are a number of features of the “Midi” mine that challenge its design integrity. These are discussed
in table 41.2, which refers to figure 41.2.

7. WARNING. At least 4 of the 25 improvised mines (16%) encountered by the Saudi Arabia-led coalition
to date have initiated during the render safe procedure, or when being towed to a safe disposal site.

Figure 41.2
The “Midi” improvised sea mine 3

__________________
3
Widely reported in media. e.g. Covert Shores, 25 March 2017.
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Table 41.2
Design and dimensions of Houthi-Saleh improvised sea mines

Red
Circle Generic Analysis Remarks

1 Horns No rust on horns so probably Presence of AA batteries means

plastic not chemical as there is no
requirement for an electrolyte to
charge a battery.
2 Mooring wire Based on the cable diameter and
rim size, the cable is no more than
30m.
3 Cradle Assuming the steel is one inch No sinkers identified.
angle iron means that could be too
small to overcome the buoyancy
of the mine on its own and would
require a sinker attached to it.
From known mine dimensions the
cradle is assessed as being
approximately 0.45m (L) x 0.4m
(W). From density calculations it
is estimated that the mass of the
cradle plus 30m of mooring wire
is approximately 26kg.
4 Mooring wire Approximately 30m of possible
10mm steel cable.
5 Dissolving Arming Disc There is no mine release
mechanism on the cradle, which
would be required if the mine were
to be armed hydrostatically.
6 Unknown vessel
7 Container Based on the dimensions of the
“Thwaq” mine, the container is
0.72m long by 0.397m diameter.
Assuming 10mm thickness steel,
the approximate container weight
is 87kg.

7. There are slight design differences between the “Midi” mine and the “Thwaq” mines, namely the
positioning of the Dissolving Arming Disc, which is central on the “Midi” mine and offset on the “Thwaq” mine.

8. The buoyancy of an object can be calculated by comparing the Buoyancy Force (Newtons (N)) against
the Gravity Force (N).

Buoyancy Force = Volume (m3) x Density of Water (kg/m3) x Force of Gravity (g) (m/s2)

Gravity Force = Mass (kg) x g (m/s2)

9. If the buoyancy force is greater than the gravity force then the improvised mine will float. In this case the
steel thickness of the improvised mine body will be the determining factor as to whether the improvised mines float
or sink. For these improvised sea mines if the steel is thicker than 7mm the improvised mines will sink.

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Annex 42: Technical analysis of ATGW 9M133 ‘Kornet’ versus ‘Dehleyvah’

1. Tables 42.1 and 42.2 show the location of the markings and other “identifiers”. Supporting
imagery is at figures 42.1 to 42.4.

Table 42.1
Identifiers for ATGM type (9M133 ‘Kornet’ v ‘Dehleyvah’)

Serial Identifier or markings 9M133 ‘Kornet’ ‘Dehleyvah’ Remarks

1 End Cap Chamfer Minimal Pronounced

2 Tube Code Yes None K (K) = Warhead Type
H (N) = Warhead Code
3 Warhead Filling and Yes None
Date
4 Load Condition Yes None OK CHAP means
Fuzed
5 Missile Type Code Numerical only Numerical and M (M) = Missile Code
text
6 Lot / Batch Number 02 - 08 LOT: 07
DATE: 2015
7 ATGM Serial Number Numerical only S/N: then
Numerical
8 Temperature Limitations None -20 0 C to +50 0 C
9 Body Colour Sandy Green Olive Green
10 Tube Material Wrapped GRP Extruded
11 Font for Markings Stencil type Block type

Table 42.2
Identifiers for ATGM type (9M133-1 ‘Kornet’ (Export Version) v ‘Dehleyvah’)

Serial Identifier or markings 9M133 ‘Kornet’ ‘Dehleyvah’ Remarks

1 End Cap Chamfer Minimal Pronounced

2 Tube Code Yes None K (K) = Warhead Type
H (N) = Warhead Code
3 Load Condition Yes None FULLY LOADED
means Fuzed
4 Missile Type Code Numerical only Numerical and M (M) = Missile Code
text
5 Lot / Batch Number 02 - 08 LOT: 07
DATE: 2015
6 ATGM Serial Number Numerical only S/N: then
Numerical
7 Temperature Limitations None -20 0 C to +50 0 C
8 Body Colour Sand Olive Green
9 Tube Material Wrapped GRP Extruded
10 Font for Markings Stencil type Block type

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Figure 42.1 Figure 42.2

9M133 ‘Kornet’ ATGM 1 9M133 ‘Kornet’ ATGM (Export Version) 2

Figure 42.3 Figure 42.3

‘Dehleyvah’ ATGM 3 ‘Dehleyvah’ ATGM markings 4

__________________
1
Panel image.
2
Ibid.
3
Confidential source.
4
Ibid.
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Annex 43: Summary of black market small arms ammunition prices 1

Figure 43.1
Graph of Black Market prices (Yemen) (2015 – 2017)

Figure 43.2
Graph of Black Market prices (Aden) (2015 - 2017)

__________________
1
Data sourced from a UN agency in Yemen.
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Figure 43.3
Graph of Black Market prices (Abyan) (2016 - 2017)

Figure 43.4
Graph of Black Market prices (Other) (2016 - 2017)

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Annex 44: End User Certificates

Figure 44.1
EUC related letter from Houthi-Saleh administration

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UN official translation from Arabic 1

Republic of Yemen
Ministry of Defence
Procurement Office
No. ...
Date: 1 July 2015
Major General Husayn Najiy Khayran
Acting Minister of Defence
On the instructions of the acting Minister of Defence and Chief of the General Staff, Major General Husayn
Najiy Khayran, [handwritten addition, illegible] between the Ministry of Defence, represented by the
Procurement Office, being the first party, and the Fusul corporation, represented by its director, Mr. Adib Fares
Mohammed, being the second party, for the importation of the arms and ammunition mentioned in the end user
certificate that was drafted on the instructions of the acting Minister of Defence.
Accordingly, the second party undertakes to deliver in instalments the above -mentioned in the period
between July 2015 and the end of 2016.
The value was calculated on the basis of each invoice individually and guarantees were offered by Mr. F ares
Mana’a and Mr. Rashid Fares.

Mr. Fares Mohammed Mana’a

Second party
(Signed) Mr. Adib Mohammed Fares
First party
[stamped] (Signed) Colonel Muhammad Muhammad al-Saqqaf
Director, Procurement Office

__________________
1
1702089E dated 13 February 2017.
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Figure 4.2
EUC to support possible attempt to procure arms from Bulgaria

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Figure 44.3
EUC to support possible attempt to procure arms from China, Iran, Serbia and Slovak Republic

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Figure 44.4
Second EUC to support possible attempt to procure arms from Iran

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Figure 44.5
EUC to support possible attempt to procure arms from the Philippines

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Figure 44.6
Second EUC to support possible attempt to procure arms from Serbia

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Figure 44.7
Second, third and fourth EUC to support possible attempt to procure arms from the Slovak Republic

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Annex 45: Estimated revenue available to groups based on 2011 CBY budget

Table 45.1
2011 Budget estimated revenues (YER Million)

Budget Central Local

item Designation authorities authorities Current control

1 Tax 363,837 16,929

1.1 Zakat 11,588 Houthi
1.1.1.1 Zakat agriculture 397 Houthi
1.1.1.2 Zakat qat 837 Houthi
1.1.1.3 Zakat vegetables 234 Houthi
1.1.1.4 Zakat animals 33 Houthi
1.1.1.5 Zakat public companies 2,137 Houthi
1.1.1.6 Zakat private companies 4,883 Houthi
1.1.1.7 Zakat individuals 1,404 Houthi
1.1.1.8 Zakat fitra 1
1,053 Houthi
1.1.1.9 Other zakat 605 Houthi
1.2 Tax on revenues 170,067 1,653
1.2.1.1 Tax state salaries 73,996 Houthi
1.2.1.2 Tax salaries joint companies 17,175 Houthi
1.2.1.3 Tax salaries private 19,148 Houthi
companies
1.2.1.4 Liberal professions 462 Houthi
1.2.1.5 Estate rent tax 1,190 Houthi
1.2.1.6 Estate sale tax 1,797 Houthi
1.2.2. Corporate income tax 56,797 Houthi
1.2.3.1 Tax penalties 1,146 Houthi
1.5 Commodities and services 137,403
1.5.1.1 Fuel 22,215 Houthi
1.5.1.3 Cigarettes 31,999 Houthi
1.5.1.4 Qat 2,321 Houthi
1.5.1.5 Others 12,462 Houthi
1.5.1.11 Tax construction products 46,389 Both
1.5.1.12 Other commodities 52,674
1.5.1.13 Services and cell phones 11,376 Houthi
1.5.1.16 Other services 56,318
1.5.4.14 Tax telecommunications 2,899 Houthi
1.6.1. Customs 52,979
1.6.1.1 Vehicles 6,124 Import, reduced 2
1.6.1.2 Electric equipment 1,725 Import, reduced
__________________
1
Zakat given by all Muslims after the completion of the fasting month of Ramadan
2
The term reduced means that the revenue available now is reduced from that available in 2011 due to the conflict.
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Budget Central Local

item Designation authorities authorities Current control
1.6.1.3 Medical 2,657 Houthi
1.6.1.7 Customs others 42,470
2 Foreign Assistance 36,278 Government
2.1.x.x Foreign government donors 17,823
2.2.x.x International organizations 18,455
donors
3 Revenues Public Ownership 1,318,793 Houthi
3.1.2.2 Industrial revenues 1,754 Severely reduced
3.1.2.3 Telecom revenues 14,945 Houthi
3.1.2.5 Financial revenues 17,203 Severely reduced
3.1.2.6 Public extractive revenues 11,076 Government, reduced
3.1.4.1 Oil exports 728,287 Government, reduced
3.1.4.2 Oil internal consumption 393,051 Government, reduced
3.1.4.3 Natural gas exports 38,474 Government, reduced
3.1.4.4 Natural gas internal 26,195 Government, reduced
consumption
3.1.4.7 Licences mineral 20,743 Government, reduced
exploitation
3.1.4.8 Tax oil companies 2,993 Government, reduced
3.1.4.14 Others 22,526
3.2.1.3 Fisheries revenues 456 Government, reduced
3.2.1.4 Vehicle registration 165 Houthi, reduced
3.2.1.5 Book sales revenues 31 Houthi
3.2.2.3 Registrar revenues 197 Houthi
3.2.2.6 Legal registrations 26 Houthi, reduced
3.2.2.11 Passports 516 Houthis reduced
3.2.2.14 Consular 2,273 Government
3.2.2.15 Identification cards 279 Houthi, reduced
3.2.2.16 Birth registration 7 Houthi
3.2.2.17 Drivers licence 127 Houthi reduced
3.2.2.18 Well digging licence 9 Houthi, reduced
3.2.2.19 Market place 30 Houthi, reduced
3.2.2.20 Central butcheries 12 Houthi, reduced
3.2.3 Non-market institutions 6,125
3.2.3.3 Printed forms 2,675
3.2.3.6 Universities 72 Houthi, reduced
3.2.3.23 Others 3,370
3.3 Penalties 541 Houthi, reduced
3.5.1 Others 30,071
3.5.1.1 Funds 7,473
3.5.1.3 Waste 254

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Budget Central Local

item Designation authorities authorities Current control
3.5.1.4 Remaining non-executed 17,218
budget
3.5.1.5 Others 7,114
5.4.2.1 Long term securities 14,980
Totals 2,818,623 978

Table 45.2
Main budget items likely available to the Houthis (YER Millions)

Budget Central Local

item Designation authorities authorities Under Houthi control

1 Tax 363,837 16,929 Yes

2 Foreign Assistance 0 No
3 Revenues Public Ownership 43,649 980 Small portion
Totals 407,486 17,909

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Annex 46: Customs extortion of traders

1. The Panel gathered evidence indicating that Yahya Mohamed Abdullah al-Osta, the acting head of the
Sana’a based Yemen customs authority (‘YCA’), appointed by Mohamed Ali Al Houthi on 28 May 2016 1, played
a major role in establishing mechanisms with the aim of applying additional customs taxes outside the legal
framework. This facilitated the extortion of traders.

2. As the mechanisms did not have any legal basis, al-Osta coerced selected members of the chamber of
commerce in Sana’a to sign an agreement allowing inspection and fees associated with them.

3. In early 2017 random customs checks were instigated in the Sana’a area, which targeted traders not
affiliated with the Houthis for false customs declaration at the ports. Extortion and customs clearance delays led to
discontent within the Sana’a based chamber of commerce, with traders vehemently complaining about the new
procedures after the shooting of a trader at a customs check point on 1 March 2017. 2 On 3 March and 8 April 2017,
the ‘YCA” agreed to conduct checks outside the port, although the agreement was coerced and not legal. It was
denounced and cancelled publicly by the same chamber on 13 August 2017.

4. Since then Yahya Mohamed Abdullah al-Osta has overseen the implementation of illegal mechanisms for
the collection of customs duties for the benefit of Houthi armed groups acting on behalf and under the control of
Abdulmalik al-Houthi (YEi 004).

5. On 4 April 2017, the Sana’a based ministry of finance established new permanent customs posts at the
Amran and Dhamar checkpoints,3 designed to exploit the additional taxes as a result of the decrease of traffic from
Hudaydah port.

__________________
1
Mohamed Abdullah al-Osta was a mid-level staff member working as a legal advisor within the ministry of finance.
2
Chamber of Commerce meeting on 1 March 2017, confirmed to the Panel by members of the chamber,
https://www.youtube.com/watch?v=LhlFKR7R3Tk, authenticity confirmed to the Panel by members of the chamber.
3
Decision 138 of 2017, see http://customs.gov.ye/news_show_ar.php?id=132.
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Appendix A to Annex 46: Coercion of the chamber of commerce and industry (meeting on 4 March 2017)

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UN official translation from Arabic

Date: 9 April 2017

Minutes of the meeting on joint coordination between the customs authority and the chambers of commerce
and industry of the capital governorate and Sana’a governorate

At 0900 hours on the morning of Saturday, 4 March 2017, a joint meeting was h eld between the leadership
of the customs authority and the leaderships of the chambers of commerce and industry of the capital governorate
and Sana’a governorate. The subject was joint coordination between, on the one hand, the customs authority,
represented by Yahya Muhammad al-Osta, Chargé d'affaires a.i. and deputy chief of the customs authority, and, on
the other hand, the chamber of commerce and industry of the capital governorate, represented by Muhammad
Muhammad Salah, deputy head of the chamber of commerce and industry of that governorate, and the chamber of
commerce and industry of Sana’a governorate, represented by Husayn Muhammad al-Suwari, Head of the Chamber.

The meeting was attended by the following:

The chamber of commerce

Muhammad Sharib – member of the board of directors of the chamber

Muhammad al-Insi – counsel to the chamber of commerce

The customs authority

Yahya Sharaf al-Kibsi – assistant deputy for technical affairs

Mujahid al-Tahif – assistant deputy for control affairs

Abdullah al-Mahdi - counsel to the authority

Nur al-Din al-Badah - director-general of control, Sana’a

Ali Husayn Hamid - director-general of customs inspection

Muhammad Husayn al-Abid- assistant director-general of inspection

Hisham Rajih- operations room official

[Handwritten:] Authentic copy, Director of the Office of the Deputy ( Illegible signature)]

After discussing various issues, the attendees agreed on the following:

1. Goods coming from Hudaydah and Salif would not be granted entry.

2. For incoming goods exempted under the existing Arab agreement and the Yemeni -Saudi agreement, the
merchant shall provide a customs declaration and pay any discrepancy based on a calculation of 48 per cent.
Customs will conduct a spot check of 20 per cent of any shipment to determine if they are subject to financial
payment. If any are found to be in violation, the inspection will be widened.

3. Goods coming from Aden will be subject to a 10 to 20 per cent check, and will be subject to inspection if
violations are found. If no violations are found, they will be released immediately without any payment other than
20,000 in additional charges.

4. Goods not of Arab origin meeting existing specifications include the following:

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Olives – soap Cooking oils Metal and wood

Canned goods - sweets Frozen chicken Non-Arab cement

Energy drinks – raw materials for manufacturing, etc.

Such goods will be subject to checks to make sure they match the customs declaration precisely.

5. Any imports not accompanied by a customs declaration will be treated under provisions for smuggling and
the Customs Act.

6. The Prime Minister’s 2016 decision on combating smuggling will be complied with.

In accordance with the preceding, an agreement was reached between, on the one ha nd, the chamber of
commerce of the capital governorate and the chamber of commerce of Sana ’a governorate, and, on the other hand,
the customs authority. The customs authority committed to informing central security and the Inspector -General of
the Ministry of the Interior of the need to prohibit raids in the streets inside the capital.

7. For imports at the Wadi‘ah and Shahn crossing points, the merchant will submit a declaration of any
discrepancy in the goods. He will be assisted in paying part of the fi ne, provided no additional discrepancy is found.

All parties committed to keep each other informed and to engage in cordial communication and cooperation
under the principle of partnership between Customs and the private sector.

The meeting ended at 1030 hours on that day, Saturday 4 March 2017. The two sides signed in a spirit of
friendship and brotherhood.

May God grant success.

(Signed) Faysal Abdulaziz al-Awwami

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Appendix B to Annex 46: Coercion of the chamber of commerce and industry (meeting 8 April 2017)

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UN official translation from Arabic

Minutes of the coordination meeting between the customs authority and the chamber of commerce

The chamber of commerce and industry at the capital governorate Sana’a met with the customs authority
on Saturday, 8 April 2017. The previous minutes were reviewed and adopted. At the same time, various outstanding
matters were discussed and those present agreed on the following:

1. With regard to the fee in cases where the importer or merchant has submitted an accurate declaration of
the quantity and prevailing price, the authority agrees to wave the fee where the declaration is prior to the opening
of the means of transport.

2. There would be ongoing coordination between the chamber and the authority on any emerging issues of
concern to both parties.

3. Media escalation would cease, and both parties would take responsibility in that regard.

4. Procedures would be facilitated for any merchant or importer in complia nce who cooperated with the
Authority within the law.

5. All present declared that the customs supervision currently being inaugurated in the governorates was as
needed in accordance with article 67 of the customs act (No. 14 of 1990, as amended).

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Appendix C to Annex 46: Letter of 13 August 2017 from the chambers of commerce and industry to the
customs authority cancelling the agreement of 4 March 2017

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UN official translation from Arabic

Date: 12 August 2017

Subject: Official notice of cancellation of recent agreements between the chamber of commerce and the
customs authority

The chamber of commerce and industry of the capital governorate presents it s compliments and wishes
you continued progress in your work.

I write in reference to the above subject and agreements that we signed with the customs authority on 3, 4
and 20 April 2017. Even though some of their provisions were prejudicial to the privat e sector, the chamber was
trying to prevent any sources of friction in relations between the private sector and the customs authority, and we
signed those unfair agreements with the customs authority in the hope of normalizing relations between the
Authority and the private sector. Those relations had deteriorated considerably owing to abusive treatment of the
private sector by the customs administration and officials, the introduction of mechanisms and decisions contrary
to the customs act and other relevant legal provisions, the creation of customs departments in Dhamar, Amran, and
so on. We had hoped for the restoration of all the official customs procedures and documentation used in customs
departments at land and sea border points in the Republic of Yem en.

Unfortunately, the customs authority has continued to persist daily in impeding commercial activity and
inventing new procedures that strangle Yemeni merchants, in every sense of the word.

The customs authority imposes unjustified duties on goods coming from Aden. It subjects them to
additional inspections, checks, duties and fees even when those goods have valid customs declarations. Goods
coming from the ports of Hudaydah and Salif are also subject to delays, theft and fees, as are goods coming from
Wadi‘ah, Mukalla and Shahn. There have been numerous complaints coming from all over of the commercial and
private sectors. Merchants, importers, owners, investors and businessmen are all complaining about arbitrary
customs practices and procedures, and are demanding the cancellation of these unfair agreements.

The Customs Authority is also insisting on the payment of customs duties in cash. That is a disaster for the
private sector, given the liquidity crisis currently faced by our country and the refusa l by the Central Bank to supply
commercial banks with national currency, not mention the increased risk of liquid assets being diverted from one
location to another under such conditions.

That is not even to mention the exorbitant fees being charged by cu stoms officials and the arbitrary delays,
procedures and other inconveniences suffered by the private sector every day. In the northern regions, customs
procedures remain a burden on the shoulders of all merchants without exception.

The agreement signed between the private sector – represented by the chamber of commerce and industry
in the capital governorate Sana’a – and the customs authority was supposed to lighten the burden on merchants.
Instead, the customs authority is abusing that agreement, misappl ying its procedures, and fleecing the private sector
more than ever before. Merchants have found that the hardship and damage inflicted on them by the customs
authority has only been compounded by the agreement.

Therefore, given the enormous volume of complaints submitted by all parts of the private sector demanding
the cancellation of these agreements, and the damage these agreements are doing to the overall national economy,
the chamber of commerce and industry at the capital governorate Sana ’a hereby notifies you officially of the
cancellation of the agreements signed between the authority and the chamber until further notice.

(Signed) Muhammad Muhammad Salah

Deputy Head of the Chamber

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Annex 47: Houthi revenue from black market sales of oil products
Table 47.1
Estimates of oil distribution and sale costs 1

YER
(Market 2 YER
Item Rate) (CBY3 Rate) US$ 4 Remarks

1. Total cost with delivery 184

in Sana’a (Diesel per L)
2. Total cost with delivery 196
in Sana’a (Petrol per L)
a. Delivery cost to Red 135 93 0.37 US$446/Ton (1,200L)
Sea ports (diesel/L)
b. Delivery cost to Red 140 96 0.38 US$520/Ton (1,350L)
Sea ports (petrol/L)
c. Transport cost to 6 5 0.02 Private transport
Sana’a
d. YPC Fees/(Diesel per 43 29.5 / 0.12 / Collected by Houthis
L) 34.2 0.14
e. YPC Fees/(Petrol per L) 50 29.5 / 0.12 / Collected by Houthis
34.2 0.14
3. Official sale price 215 147 0.59
(Sana’a)
3a. Black Market price 240 5 164 / 171 0.66 / Houthi affiliate
(Sana’a) (Diesel per L) 0.68
3b. Black Market price 250 6 164 / 171 0.66 / Houthi affiliate
(Sana’a) (Petrol per L) 0.68
4. Houthi Margin/L (Sales) 56 / 54 On Sales
(Diesel/Petrol)
5. Total Houthi Margin/L 99 / 104 Including YPC fee
(Diesel/Petrol)

__________________
1
Confidential sources in the oil and gas industry in Yemen.
2
At unofficial exchange rate of USD$ 1 = YER 365.
3
CBY rate is YER 250 to US$1.00.
4
At CBY rate.
5
Current price per liter for diesel and petrol. The price reached YER 280 throughout 2016 and early 2017. See
statement of the acting chief of customs http://customs.gov.ye/news_show_ar.php?id=130.
6
Ibid.
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Table 47.2
Estimates of potential oil revenue for the Houthis (5 May 2016 – 30 July 2017) 7.

Houthi margins

YER US$
Item Delivered (MT) Delivered (L) (Market) 8 (CBY Rate) 9

Total fuel deliveries to 2,031,609

Red Sea ports (MT)
Total if all Petrol (L) 2,742,672,15
0 318,462,300,000 1,273,849,200
Total if all Diesel (L) 2,437,930,80
0 269,468,100,000 1,077,872,400

__________________
7
The Panel could not estimate the costs after July 2017 as: 1) exchange rate stopped to be fixed to YER 2 50 for
1 USD$; and 2) cost of fuel increased continuously since July and reached 25% in December 2017 compared to July
2017. http://www.bunkerindex.com/prices/bixfree_1709.php?priceindex_id=4 .
8
At unofficial exchange rate of USD$ 1 = YER 365. The fuel is sold on the black market so this rate applies.
9
Official exchange rate used in this case as that is the value the Houthis would acquire if exchanged on international
market.
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CONFIDENTIAL ANNEX NOT FOR PUBLIC DISSEMINATION

Annex 48: List of consignees for fuel import in Red Sea ports

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Table X.2
Number of tankers for consignees for fuel import in Red Sea ports before and after 1 March 2017

Number of tankers Number of tankers

Ser Consignees before after
1 Abha Global Trading 2
2 Aggreko Yemen for Agricultural Products 2
3 az-Zahraa Establishment for Trading and Agencies 2
4 Bin Dowal for Iron Steel Co. Mukalla, Yemen 2
5 Dynasty Trading Yemen 2
6 Mok Corporation for Trading and Oil Services 2
7 Oil Premier Oil Services and Trading 2
8 Matrixoil Import, Yemen 3
9 Middle East Shipping 3
10 Ahmed Mohammed Saleh Albaidhani for Trading 4
11 Nama’a Power Oil Services and Importing 4
12 Elaf for Import Oil Derivatives 5
13 Albarakah Republic Trading Company 1 1
14 Golden Oil FZC, Sharjah, UAE 1 1
15 Yemen Company for Industrial Investment 1 2
16 Balad al Khairat for Import Petroleum 1 7
17 Yemen Petroleum Company 3 1
18 Deema Yemen for Trading and Agencies 3 9
19 Climax for Import 4 2
20 Sam Oil Company for Trade and Oil Services 7 20
21 Tamco Petroleum 7 14
22 Atico Trading and Industry 10 11
23 Yahya Oseily Export Company Limited 11 17
24 Begad International for Import 13
25 al Attas for Trade and Marketing 4
26 al Hutheily General Trading 3
27 Alchemist Energy Trading DMCC 3
28 al Emteaz International for Importing 3
29 Falcon Shipping and Marine Services 3
30 Waqood for Investment 3
31 al Zahra Trading and Agencies Establishment 2
32 Hamady for Trade and Cold Store 2
33 MOPC for Oil and Gas Services 2
34 Vamoil International 2

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Annex 49: Risks of looting and trafficking of antiquities and cultural objects
Figure 49.1
Example of artefacts seized in Geneva

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Figure 49.2
Artefacts observed in Lahij 1

__________________
1
Sources: Yafa News, August 2017, http://www.yafa-news.net/archives/263955. Interview with the director of
archaeology at al-Dad district, Lahij (November 2017).
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Figure 49.3
Artefacts observed in in Tebbat Tawfiq Saleh Sourg of Sana’a2

__________________
2
http://almasirah.net/gallery/preview.php?file_id=10481#.Wiifxroe bms.whatsapp.
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Figure 49.4
Artefacts observed in Ta’izz under the control of resistance forces (Museum al-Ardi in Ta’izz)

A resistance fighter inspects the damage to the Ta’izz National Museum, Yemen.
Photo: AHMAD AL-BASHA/AFP/Getty Images. 3

__________________
3
https://news.artnet.com/art-world/taiz-national-museum-destroyed-419792.
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Annex 50: Banks and finance institutions in Yemen

Table 50.1
Yemeni banks and financial institutions

Capital Government
Ser Bank YER Billion Branch(s) stake % Other stake % Founded Remarks

1 Central Bank of Yemen 6.0 21 100 1971

(CBY)
2 Yemen Bank for 15.0 44 51 P 149 1962 Shareholder in Kamaran
Reconstruction and (KIIC)
Development
3 National Bank of Yemen 10.0 27 100 1969 Known as Al Ahli Bank,
owned by the
Government, the only
bank with head office in
Aden
4 Arab Bank 6.0 9 F100% 1972
5 United Bank Limited 6.0 3 F100% 1972
6 Housing Bank 0.2 1 97% P3% 1977
7 International Bank of Yemen 15.0 23 P85%, F15% 1979 Associated with Shahir
Abdulhaq Bishr
8 Yemen Kuwait Bank for 6.0 12 P100% 1979 Associated with
Trade and Investment Alsonidar family
9 Cooperative and 14.9 51 100 1982 Owns branches in
Agricultural Credit Bank Djibouti and in Bosaso,
Puntland, Somalia
10 Al-Rafidayn Bank 6.5 1 F100% 1982
11 Yemen Commercial Bank 7.9 14 10 P90% 1993 Associated with al-
Rowayshan family
12 Islamic Bank of Yemen for 4.4 6 4.5 P73.5%, F22% 1995 Associated with Al-
Finance and Investment Aswadi family
13 Tadhamon International 20.0 21 P96.7%, F3.3% 1996 Associated with Hayel
Islamic Bank Saeed family

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__________________
1
P = Private Investor stake and F = Foreign Investor state.
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208/329

Capital Government
Ser Bank YER Billion Branch(s) stake % Other stake % Founded Remarks
14 Saba Islamic Bank 16.0 16 P85%, F15% 1997 Associated with Al
Ahmar family and Dubai
Islamic Bank
15 Yemen Gulf Bank 1.3 2 1% P77%, F22% 2001
16 Shamil Bank of Yemen and 6.0 9 P57%, F43% 2002
Bahrain
17 Qatar National Bank (QNB) 6.0 1 F100% 2007
18 Al-Amal Microfinance Bank 3.8 18 45% P20%, F35% 2008
19 Al-Kuraimi Islamic 10.0 23 P100% 2010 Associated with the Al-
Microfinance Bank Kuraimi family
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Table 50.1
Money exchangers operating in Yemen

Ser Name Arabic Name Used by traders Presence in Sana’a Presence in Ta’izz
1 Abd al-Aawi al-Amri Exchange ‫عبدالقوي العامري للصرافة‬ Yes
2 Abdellah Meftah Exchange ‫عبدهللا مفتاح للصرافة‬ Yes
3 Abdullah Al Amri Exchange ‫عبد هللا العامري للصرافة‬ Yes
4 Abu Adel Exchange ‫ابو عادل للصرافة‬ Yes
5 Abu Hisham Exchange ‫ابو هشام للصرافة‬ Yes
6 Abu Meftah Exchange ‫أبو مفتاح للصرافة‬ Yes
7 Abu Murad Exchange ‫ابو مراد للصرافة‬ Yes
8 Abu Taha Athur Exchange ‫ابو طه الثور للصرافة‬ Yes
9 Ahmed al Amri Exchange ‫احمد العامري للصرافة‬ Yes Yes
10 Ahmed Al Amri Exchange ‫أحمد العامري للصرافة‬ Yes
11 Al Akwa’a Exchange ‫األكوع للصرافة‬ Yes
12 Al Arabiya Exchange ‫العربية للصرافة‬ Yes
13 Al Atiri Exchange ‫العطيري للصرافة‬ Yes
14 Al Aydarus Exchange ‫العيدروس للصرافة‬ Yes Yes
15 Al Azzi Exchange ‫العزي للصرافة‬ Yes
16 Al Baidani Exchange ‫البيضاني للصرافة‬ Yes
17 Al Barq Exchange ‫البرق للصرافة‬ Yes Yes
18 Al Busairi Exchange ‫البسيري للصرافة‬ Yes
19 Al Faqih Exchange ‫الفقية للصرافة‬ Yes
20 Al Gharassi Exchange ‫الغراسي للصرافة‬ Yes
21 Al Hajri Exchange ‫الحجري للصرافة‬ Yes Yes
22 Al Hatha’a Exchange ‫الحظاء للصرافة‬ Yes
23 Al Hattar Exchange ‫الهتار للصرافة‬ Yes
24 Al Hazmi Exchange ‫الحزمي للصرافة‬ Yes
25 Al Jazeera Exchange ‫الجزيرة اخوان‬ Yes Yes Yes

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26 Al Kabus Exchange ‫الكبوس للصرافة‬ Yes

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Ser Name Arabic Name Used by traders Presence in Sana’a Presence in Ta’izz
27 Al Khaleej Exchange ‫الخليج للصرافة‬ Yes
28 Al Khulaidi Exchange ‫الخليدي للصرافة‬ Yes
29 Al Mahraqi Exchange ‫المحرقي للصرافة‬ Yes
30 Al Majrabi Exchange ‫المجربي للصرافة‬ Yes
31 Al Marah Exchange ‫المرح للصرافة‬ Yes
32 Al Marry Exchange ‫المري للصرافة‬ Yes
33 Al Mesbahi Exchange ‫المصباحي للصرافة‬ Yes
34 Al Mihdar Exchange ‫المحضار للصرافة‬ Yes
35 Al Muhajeer Exchange ‫المهاجر للصرافة‬ Yes
36 Al Muttahida Exchange ‫المتحدة للصرافة‬ Yes
37 Al Omgui Exchange ‫العمقي للصرافة‬ Yes
38 Al Qasmi Exchange ‫القاسمي للصرافة‬ Yes
39 Al Qutaibi Exchange ‫القطيبي للصرافة‬ Yes
40 Al Yabani Exchange ‫اليباني للصرافة‬ Yes
41 Al Yemeni Exchange ‫اليمني للصرافة‬ Yes
42 Alamari Exchange ‫مؤسسة المري للصرافة‬ Yes
43 Amran Exchange ‫عمران للصرافة‬ Yes
44 Annajm Exchange ‫النجم للصرافة‬ Yes
45 Annasser Exchange ‫الناصر للصرافة‬ Yes Yes
46 Annuman Exchange ‫النعمان للصرافة‬ Yes Yes
47 Ashahdi Exchange ‫الشاحدي للصرافة‬ Yes
48 Assaeed Exchange ‫السعيد للصرافة‬ Yes
49 Assaifi Exchange ‫الصيفي للصرافة‬ Yes
50 Assuraimi Exchange ‫الصريمي للصرافة‬ Yes
51 Athur Exchange ‫الثور للصرافة‬ Yes
52 Attadamun Exchange ‫التضامن للصرافة‬ Yes
53 Azzubairi Exchange ‫الزبيري للصرافة‬ Yes
54 Ba Wazeer Exchange ‫باوزير للصرافة‬ Yes
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Ser Name Arabic Name Used by traders Presence in Sana’a Presence in Ta’izz
55 Bakhash Exchange ‫بخاش للصرافة‬ Yes
56 Behyan Exchange ‫بهيان للصرافة‬ Yes
57 Ben Amer Exchange ‫بن عامر للصرافة‬ Yes
58 Dahhan Exchange ‫دحان مفتاح للصرافة‬ Yes
59 Exchange ‫الحظاء للصرافة‬ Yes
60 Hamood Ahmed Yuseef ‫حمود احمد يوسف للصرافة‬ Yes
Exchange
61 Heza’a Meftah Exchange ‫هزاع مفتاح للصرافة‬ Yes
62 Mahfuth al-M’abari Exchange ‫محفوظ المعبري للصرافة‬ Yes
63 Masood Exchange ‫مسعود للصرافة‬ Yes
64 Mathna Exchange ‫مثنى للصرافة‬ Yes
65 Muhamed Abdulmalik Athur ‫محمد عبدالملك الثور للصرافة‬ Yes
Exchange
66 Muhsein Shrhan Exchange ‫محسن شرهان للصرافة‬ Yes
67 Munawar Lotf Exchange ‫منور لطف للصرافة‬ Yes
68 Naguib Radif Exchange ‫نجيب رضيف للصرافة‬ Yes
69 Nahshal Exchange ‫نهشل للصرافة‬ Yes
70 Sabra Exchange ‫صبرة للصرافة‬ Yes Yes
71 Saleh Al Arwi Exchange ‫صالح العروي للصرافة‬ Yes
72 Shar’ab Arruna Ben Lotf ‫شرعب الرونة بن لطف للصرافة‬ Yes
Exchange
73 Suwaid and Sons Exchange ‫سويد واوالدة للصرافة‬ Yes
74 Suwaid Exchange ‫سويد للصرافة‬ Yes

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Annex 51: Money supply M0 1 of YER (1999 to present)
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Table 51.1
Value (YER Million) by banknote denomination

Value (YER Million) for each banknote denomination

Year 1 5 10 20 50 100 200 250 500 1000 Coins

1999 123 247 649 1,556 12,842 48,589 40,819 30,469 33,770 19
2000 123 289 679 1,156 11,492 50,540 43,235 31,439.0 62,469.0 19
2001 123 327 807 1,083 9,840 49,760 42,287 39,113 72,236.8 19
2002 122 376 829 1,047 9,155 53,354 40,919 58,802 79,151 19
2003 124 390 920 994 9,727 53,271 41,618 75,255 91,954 19
2004 124 425 1,081 902 10,134 49,159 39,990 87,782 113,181 19
2005 127 457 1,165 908 6,404 31,083 36,793 100,209 160,359 19
2006 127 474 1,250 965 4,570 21,591 32,897 102,518 254,934 19
2007 127 483 1,315 1,089 4,184 17,939 27,205 111,758 279,873 19
2008 128 532 1,399 1,227 4,289 15,415 21,961 129,336 316,196 19
2009 128 551 1,461 1,325 4,528 14,810 10,087 10,563 158,597 349,650 19
2010 128 557 1,536 1,417 4,085 13,079 5,125 16,650 141,553 387,249 19
2011 128 559 1,613 1,502 3,357 12,208 3,967 19,787 151,882 605,263 19
2012 128 584 1,845 1,775 2,892 14,556 3,124 11,235 109,260 687,378 19
2013 128 614 1,934 2,110 2,755 15,056 2,724 9,000 79,022 708,532 19
2014 129 675 1,936 2,412 2,409 14,373 2,397 10,833 73,578 746,123 19
2017 600,000 400,000

__________________
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1
M0 is a measure of the money supply, which combines any liquid or cash assets held within a central bank and the amount of physical currency circulating in the
economy.
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Annex 52: Vouchers issued by Abu Nabil Al Qaramani

1. Voucher card indicating that an employee with a salary YER 410,000 was to receive vouchers
worth YER 200,000 and YER 60,000 to be used respectively in Dhamran market and Ashariga market

Figure 52.1
Al Qaramani voucher ID card to be used with voucher 1

2. Allocation of YER 5,000 and YER 10,000 vouchers to one administrative service

Figure 52.2
Al Qaramani vouchers (YER 20,000 and YER 30,000)

__________________
1
Source: Employee with identity masked.
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Annex 53: Money laundering of new (counterfeit) YER 5,000 promissory notes 1

Figure 53.1
Seized counterfeit YER 5,000 denomination promissory notes and blanks passport

Figure 53.2
Packaged counterfeit YER 5,000 denomination promissory notes

__________________
1
Images from confidential source and Jawf press.
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Figures 53.3 and 54.4

Subsequent seizure en-route in Houthi controlled areas

53.3: Seizure by Houthis in Ibb 53.4 Seizure by legitimate Government in Ma’rib

Figure 53.5
Detailed image of counterfeit YER 5,000 denomination promissory note received by the Panel used in
forensic analysis

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Figure 53.6
Detailed image of counterfeit YER 5,000 promissory note received by the Panel used in forensic analysis

I. Technical analysis

1. There is a noticeable absence of a watermark, a security thread in the substrate or security features
which are present in a majority of banknotes produced on paper substrate, including 500 YER and 1,000
YER notes.

2. There is a noticeable absence of intaglio print, a printing technique typically utilised on banknotes
and passports.

3. The front of the note is protected by: 1) yellow green fluorescent ink (it contains fluorescent
substance in addition to visible colour pigments - Arabic script in yellow green); and 2) the fluorescent
overprint (image which is invisible under white light and it fluoresces under UV light – wavy decorative
and textual elements in Latin script in yellow green).

4. The serial number is printed ink-jet by propelling small droplets of liquid ink directly onto the
substrate, a technique that is not usually utilised on banknotes.

5. Poor adhesion of the stripe onto the substrate, with some fragments of the holographic stripe
missing. These defects suggest that the applied holographic foil choice is inadequate and is likely that the
foil would not withstand well a typical banknote lifecycle / circulation.

6. The colour shifting security feature depicting four eight -pointed stars is printed utilising colour
shifting ink that is not widely available and only from a limited number of suppliers.

7. Semantic difference with notes issued by the CBY found in the second line of text on the front of
notes, just under the line: Central Bank of Yemen. On the YER 1,000 note the text reads: Issued by virtue
of the Central Bank of Yemen Law, while on the YER 5,000 note the text reads: Cheque issued by the
Central Bank of Yemen.

8. The words in the sequence Five Hundreds Riyals ( ‫خمسمائة لاير‬in Arabic) under the numeric 500
are separated by one spaces in the YER 500 note while the words in the sequence Five Thousand Riyals )
‫خمس االف لاير‬in Arabic (are stuck together, to appear as FiveThousandRiyals. The spaces which are seen in
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Yemeni and most Arabic notes with varying width are not seen in no tes with Arabic characters such as
from Jordan, Iran and KSA.

9. The serial number on genuine YER 500 and YER 1,000 notes is a seven digit number, while on
the counterfeit YER 5,000 note it is an eight digit number.

10. The banknote serial number on the YER 1,000 note appears in two positions, in a vertical and a
horizontal direction, whilst the serial number on the YER 5,000 note appears twice, only in a horizontal
direction.

11. The lack of intaglio printing, watermark and / or a security thread due to budgetary constraints are
usually those of lower denominations and extremely rarely of higher denomination

12. The poor fit could be caused by the utilisation of inadequate printing equipment, poor process
control or both - suggesting that the questioned note was not printed by a company ordinarily involved in
banknote manufacturing.

13. Simulation of a security print feature is usually expected to be seen on counterfeit notes.

14. The manufacturer of the questionable YER 5,000 note appears to have access to equipment and
materials that are available to a commercial printing company.

15. The ability to source and successfully utilise colour shifting and fluorescent inks is an indication
that the manufacturer of the 5000 YER note is a security printing comp any generally specialised in printing
of cheques, tax stamps or other security documents such as gift vouchers.

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Figure 53.7
Semantic comparison between 5 000 YER note (middle) with 500 YER (top) and 1000 YER bottom

II. Conclusions

16. Following a thorough comparative evaluation, and due to a number of observed deficiencies, most
notably the absence of: 1) intaglio printing; 2) letterpress numbering; 3) watermark; and 4) a security
thread, the note does not meet the standards of a contem porary, counterfeit-resilient banknote.

17. The see-through feature on the note exhibits poor registration between front and reverse of the
note, where blue and green segments of the numerals should be joined to give perfect or near -perfect fit
between print on the front and reverse. This fault might appear only on a small number of banknotes. If the
fault appears on a large number of banknotes it would indicate that the printer is not able to control the
process well. One of the most unexpected characteristics of the questioned banknote is not the absence of
a split duct printing, but its simulation, which only gives the appearance of the smooth merging of inks
into each other. One other plausible explanation would be that the feature was deliberately sac rificed in
order to ensure more economical use of a substrate.

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Annex 54: Cases of seizure of the non-authorized export of banknotes and gold bars
through Shehen, Mahrah

I. Banknotes and gold bars seized in Shehen, Mahrah on 9 May 2017

1. The Panel is investigating a potential case of trafficking of finance assets potentially for the benefit
of listed individuals following the seizure on 9 May 2017 at the Shehen border crossing point (BCP) with
Oman. A pickup truck was inspected by Yemeni local authorities and found to contain the equivalent of
US$ 3.42 Million in mixed foreign currency and gold. 1 The customs service proceeded the same day with
the arrest of the two individuals, seizure of the vehicle, the deposit of the shipment at the CBY branch and
the submission of the case to the prosecutor.

2. On 15 May 2017, the prosecutor, Naji Said Mohamed Kadah, ordered the customs to release the
two individuals and the vehicle, and to handover the shipment to a third person presented as the owner. As
the Head of Customs refused, the Governor himself ordered him to comply informing him that he was in
contact with President Hadi on the subject. The Panel has not received any confirmation as to the current
custody of the shipment. The individuals involved are:

(a) Mohamed Mohamed Saleh al-Addah from Shabwah, arrested at the BCP as the custodian
of the shipment;

(b) Saleh Saed Ahmed Judhaib from Ma’rib, arrested at the BCP; and

(c) Saleh Yahya Mohamed Abdullah al-Haddad, owner of the Yahya Mohamed al-Haddad
company for trade and entrepreneurships, presented documentation claiming that he was the owner
of the shipment.

3. This case is an illustration of the smuggling activity in Mahr ah as well as the involvement of local
authorities in the trafficking.

Figure 54.1
Cash and gold bars seized at Shehen BCP, Mahrah on 9 May 2017 2

__________________
1
GBP 5,425, AED 150,000, SAR 8,726,106, QAR 107,429, US$ 178,850 and 19.04 kg of gold (“at US$39 per gram”).
2Source: https://www.al-omana.com/news56507.html, 9 May 2017. Corroborated by local customs and judiciary
authorities.
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Figure 54.2
Customs receipt for GBP 5,425 cash seized at Shehen BCP, Mahrah on 9 May 2017

Figure X54.3
Customs receipt for AED 150,000 cash seized at Shehen BCP, Mahrah on 9 May 2017

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Figure 54.4
Customs receipt for SAR 8,726,106 cash seized at Shehen BCP, Mahrah on 9 May 2017

Figure 54.5
Customs receipt for QAR 107,429 cash seized at Shehen BCP, Mahrah on 9 May 2017

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Figure 54.6
Customs receipt for 7 x 19.04kg gold bars seized at Shehen BCP, Mahrah on 9 May 2017

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Figure 54.7
Declaration for funds deposited in Dubai

NOTE: Declaration that the funds were handed over to Mohamed Mohamed Saleh al-Addah for deposit at the Al
Bader Exchange in Dubai,

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Figure 54.8
Yahya Mohamed al-Haddad Institute for Trade and Enterprise registration documents (4 September 2013)

NOTE: Registration document for “Yahya Mohamed al-Haddad Institute for Trade and Enterprises” under the
name of Yahya Mohamed Abdullah al-Haddad on 4 September 2013.

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Figure 54.9
Identity document of Saleh Saed Ahmed Judhaib

Figure 54.10
Identity document of Mohamed Mohamed Saleh al-Addah

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Figure 54.11
Vehicle licence plate of truck seized at Shehen BCP, Mahrah on 8 May 17

B. Banknotes and gold bars seized at Shehen BCP, Mahrah on 17 July 2017

1. The Panel is investigating two additional potential cases of trafficking of finance assets p otentially
for the benefit of listed individuals:

(a) Seizure on 17 July 2017 at Shehen BCP of 7,174,700 Saudi Riyal (SAR); and

(b) Seizure on 27 July 2017at Shehen BCP of 300,000 SAR and 42 gold bars.

2. On 9 May 2017 at the Shehen BCP with Oman, a pickup truck was inspected by Yemeni local
authorities and found to contain the equivalent of US$ 3.42 Million in mixed foreign currency and gold. 3
The customs service proceeded the same day with the arrest of the two individuals, seizure of the vehicle,
the deposit of the shipment at the CBY branch and the submission of the case to the prosecutor.

3. The Panel has shared the information with the Government of Yemen and is still awaiting a reply
to its information requests.

__________________
3
GBP 5,425, AED 150,000, SAR 8,726,106, QAR 107,429, US$ 178,850 and 19.04 kg of gold (“at US$39 per gram”).
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Figure 54.12
Customs form XX 378 on the seizure on 17 July 2017 at Shehen BCP of SAR 7,174,700

Figure 54.13
Customs form XX 379 on seizure on 27 July 2017 at Shehen BCP of SAR 300,000 and 42 gold bars

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CONFIDENTIAL ANNEX NOT FOR PUBLIC DISSEMINATION

Annex 55: Confiscation of MV Androussa (IMO 9101182)

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Annex 56: Houthis order to seizure assets owned by their opponents

Figure X56.1
Order to the Sana’a based CBY by “the committee for the identification and the confiscation of assets
owned by traitors” to freeze assets of 1223 individuals 1

__________________
1
The order was posted in several media. The Panel confirmed its authenticity with confidential financial sources in
Sana’a. The Panel is analyzing the list comprising the 1,223 names.
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Panel’s unofficial translation from Arabic

Republic of Yemen
supreme political council 23/12/2017
committee for identification and seizure of assets owned by traitors

to the governor of the central bank

Based on the order of the special criminal prosecutor number 4376 dated 17 November 2017 which
mandated us to take measures for the provisional seizure of assets owned by traitors whose names are in the at tached
list comprising of 1,223 names starting by Ebtehaj Abdullah al -Kamel and ending by Yussef Hussein Mahdi.

In this regard and in order to implement the special criminal prosecutor’s order, we trust you could issue a
circular to all banks for the provisional seizure of all bank accounts owned by traitors whose assets are seized and
whose names are in the attached list

signed
major general Abdelhakim Hashem al Khewani
deputy minister of interior
head of the committee for identification and seizure of assets owned by traitors

END OF TRANSLATION

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Annex 57: Saleh financial network

Table 57.1
List of individuals and entities of Saleh financial network

Ser Identity Type

1 Ali Abdulah Saleh (Yei.003) Person

(Deceased on 4 November 2017)
2 Ahmed Ali Abdullah Saleh (Yei.005) Person
(a.k.a Ahmed Al-Ahmar Ali Abdullah)
3 Khaled Ali Abdullah Saleh Person
(a.k.a. Khaled Al-Ahmar Ali Abdullah)
21 Towkay Limited British Virgin Islands Company
22 Trice Bloom Limited, British Virgin Islands Company
23 Precision Diamond Limited, British Virgin Islands Company
24 Unmatchable Limited, British Virgin Islands Company
25 Albula Limited, Turks and Caicos Islands Company
26 Foxford Management Limited, Bahamas Company
27 Weisen Limited, British Virgin Islands Company
28 M-S Ansan Wikfs Hadramawt Limited, Cayman Islands Company
29 SCI 59 Rue Galilee, France Company
31 M-S ANSAN Wikfs Limited, Cayman Islands Company
32 Ansan Wikfs Darfur (for Gold), Cayman Islands Company
35 Afhamka B.V. Netherlands Company
36 Wild Horse Investment Inc, Bahamas Company
37 Raydan Investments LLC, UAE Company
38 Tilsit Real Estate BV, Netherlands Company
41 The Pact Trust Company
43 59 Rue Galilee, Paris 75008, France Address

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Table 57.2
Raydan Investment Holdings Limited transfers in UAE 1

Date AED US$ Investment / Transfer in UAE

Jan to Apr 5,173,301 1,407,865 Ecostar International Holdings Limited

2014
Feb to Apr 25,560,000 6,955,910 Al Ramz Securities LLC bank account number
2014 AEXXXXXXXXXXX58492164, National Bank
9 Jun 2014 44,085,680 12,000,000 Staroil Operating Company bank account number
AEXXXXXXXXXXX89601, Abu Dhabi Islamic Bank
25 Jun 2014 963,685 262,300 Select Global Development LLC account number
AEXXXXXXXXXXX09693, Mashreq Bank
23 Mar 2015 1,237,789 336,906 EMAAR Properties PJSC Opera Grand account number
AEXXXXXXXXXXXX54615, Commercial Bank of
Dubai
22 Apr 2015 103,385 28,140 Eversheds LLP bank account number
AEXXXXXXXXXXX39001, HSBC Bank Middle East
for oil concession payment
Totals 77,123,860 20,891,121

__________________
1
The currency of transfer is in normal bold text. All exchange rates from www.xe.com on 3 July 2017. US$ 1 = AED 3.67.
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Figure 57.1
Saleh financial network

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Annex 58: Case studies of air strikes in Yemen (2017)

1. The Panel initiated investigations on ten air strikes against civilian targets in Yemen during 2017.
Full case studies for four of these air strikes are included as shown in table 58.1. 1

2. The Panel arrived at its findings and conclusions based on its own investigations and information
available in the public domain. If the Saudi Arabia-led coalition can provide verifiable information on the
military objectives sought to be achieved that may counter the Panel ’s conclusions and findings, the Panel
stands ready to review them.

3. Saudi Arabia, on behalf of the Saudi Arabia led-coalition has refused to engage with the Panel,
stating that “the coalition’s activities” fall outside the mandate of the Panel of Experts. 2 The Panel reaffirms
that violations of IHL, including those that are committed by the Saudi Arabia-led coalition, as a party to
the conflict in Yemen, fall within the Panel’s mandate and that those individuals responsible for planning,
deciding on and/or executing air strikes 3 that disproportionately affect civilians and civilian infrastructure
may fall under the designation criteria contained in paragraphs 17 and 18 of resolution 2140 (2014). The
Saudi Arabia-led coalition, as the military entity carrying out these air strikes, can also fall within
paragraphs 17 and 18 of resolution 2216 (2015) (see paragraph 8).

Table 58.1
Full case studies of air strikes against civilian targets

Civilian Case study

Date Location Incident and target Type of ordnance casualties in Appx
16 Mar 2017 Red Sea Maritime helicopter Small arms 42 dead A
attack against Somali ammunition 34 injured
migrant boat.
25 Aug 2017 Sana’a Air delivered ordnance High explosive 16 dead B
against a civilian (HE) aircraft 17 injured
residence (a/c) bomb
2 Sep 2017 Hajjah Air delivered ordnance HE a/c bomb 3 dead C
against a civilian 13 injured
residence
1 Nov 2017 Sa’dah Air delivered ordnance HE a/c bomb 31 dead D
against a night market fitted with 26 injured
Paveway
guidance unit.

4. In the ten incidents investigated the Panel finds that:

(a) The use of precision-guided weapons 4 is a strong indicator that the intended targets were
either the objects or the individuals affected by the air strikes;

__________________
1
The Panel selects its cases accordance with its IHL methodology in Annex 1, primarily based on the availability of
requisite high standard of evidence.
2
Letter from the Kingdom of Saudi Arabia dated 10 October 2017.
3
Regarding those executing attacks, it is possible that the pilot of the a ircraft may fire his or her weapons in reliance of
the accuracy of the information that may have been previously provided to him or her. In these cases, the Panel finds
that it is those commanders who plan and decide upon the air strikes, who have at their disposal the relevant
information from a variety of sources, who have the responsibility to ensure compliance with international
humanitarian law. See also William Boothby and Michael N. Schmitt, The Law of Targeting (Oxford University Press,
2012).
4
Precision-guided weapons systems have low percentage failure rates.
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(b) In all cases investigated, there was no demonstrable evidence that the civilians in, or near
these objects, who are prima facie immune from attack, had lost their civilian protection;

(c) Even if in some of the below mentioned cases, the Saudi Arabia-led coalition had targeted
legitimate military objectives, the Panel finds, based on its investigations, that it is highly unlikely
that the IHL principles of proportionality and precautions in attack were respected in these
incidents;

(d) The cumulative effect on civilians and the civilian objects demonstrates that even if
precautionary measures were taken, they were largely inadequate and ineffective; and

(e) In respect of the individual case studies, the Panel finds that:

(i) Except for case study 1, the only military entity capable of carrying out these
airstrikes is the Saudi Arabia-led coalition. In case study 1, it is highly unlikely that an
entity other than the Saudi Arabia-led coalition could have carried out the attack;

(ii) Except for cases 2 and 4, the Saudi Arabia-led coalition has not acknowledged its
involvement in any of the attacks, nor clarified, in the public domain, the military
objective sought to be achieved. In cases 2 and 4, the Panel is unable to concur with the
justifications provided by the Saudi Arabia-led coalition.

(iii) In case study 4, an attack on a night market, even if there was a Houthi gathering
as claimed by the Saudi Arabia-led coalition, evidence strongly demonstrates that the
Saudi Arabia-led coalition did not meet IHL requirements of proportionality and
precautions in attack. This also applies to case summary 7;

(iv) Except for case summary 10, where Saudi Arabia-led coalition targeted the 22 nd
Armoured Brigade of the legitimate Government, there is no demonstrable evidence that
all those affected were deprived of the protection afforded to civilians; and

(v) In the cases where air strikes targeted residential buildings, over half of those
affected were children. The Panel finds that measures taken in the Saudi Arabia-led coalition
in its targeting process to minimize child casualties, if any, remain largely ineffective . 5

5. In the absence of any verifiable information from the Saudi Arabia -led coalition, the Panel
concludes that the evidence strongly demonstrates that these air strikes violated the IHL obligations of
individual member States of the Saudi Arabia-led coalition. All States whose forces engage in, or otherwise
participate in military operations on behalf of the coalition are responsible for “all acts committed by
persons forming part of its armed forces”. 6 These States “may not evade their obligations by placing their
contingents at the disposal of an ad hoc coalition”. 7 All Saudi Arabia-led coalition member States and their
allies 8 also have an obligation to take appropriate measures to ensure respect for IHL by the Saudi Arabia -

__________________
5
For measures reportedly taken by the Saudi Arabia-led coalition to reduce child casualties, see paragraph 200 of the
Secretary General’s Report on Children in Armed Conflict, S/2017/821, 24 August 2017. The report notes that “the
United Nations was informed of measures taken by the Saudi Arabia -led coalition in 2016 to reduce the impact of
conflict on children, including through their rules of engagement and the establishment of a joint incident assessment
team mandated to review all incidents involving civilian casualties and identify corrective action ”. Yet, of the 43
incidents examined by the Joint Incident Assessment Team (JIAT), made availab le to the Panel, in only two incidents
did it find that the Saudi Arabia-led coalition violated IHL. The Panel also notes that there is no transparency in the
implementation of the recommendations of the JIAT by the Saudi Arabia -led coalition.
6
See updated commentary to common article 1 of the Geneva Conventions of 12 August 1949 . See also article 3 of The
Hague Convention respecting the Laws and Customs of War on Land of 1907 .
7
See updated commentary to common article 1 of the Geneva Conventions .
8
Based on the updated commentary to common article 1, “allies” may include those States that engage in “financing,
equipping, arming or training” of the coalition armed forces for their engagement in Yemen an d/or those States that
plan, carry out and debrief operations jointly with the coalition. For the specific States that are involved, see para. 30.
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led coalition. 9 This obligation is especially incumbent upon the Government of Yemen, upon whose request
and with whose consent the air strikes are being conducted (see S/2015/217). The Panel stands ready to
provide the Committee with further information if requested, but in the interest of brevity, provides only
summaries of the cases in table 58.2 below.

Table 58.2
Other air strikes against civilian targets

Appx to
Annex Civilian
58 Date Location Incident and target Type of ordnance casualties

D 9 Jun 2017 Sana’a Air delivered EO Mk 82 or 84 HE 4 dead

against residential bomb / Paveway 8 wounded
building
E 4 Aug 2017 Sa’dah Air delivered EO Mk 84 2000lb 9 dead
against a civilian aircraft bomb 3 injured
residence
F 23 Aug 2017 Arhab Air delivered EO Mk 82 or 84 HE 33 dead
against hotel bomb / Paveway 25 injured 10
G 16 Sep 2017 Ma’rib Air delivered EO HE a/c bomb or 12 dead
against civilian vehicle air to ground
missile (AGM)
H 10 Nov 2017 Sa’dah Air delivered EO Mk 82 or 84 HE 4 dead
against residential bomb / Paveway 4 injured
building
I 14 Nov 2017 Ta’izz Air delivered ordnance Mk 82 or 84 HE 3 dead
against legitimate bomb / Paveway 5 injured
Government of Yemen
forces on Saber
mountain

6. The Panel also takes note of the JIAT findings that differ from Panel findings in 2016, on the case
study summaries contained in serials 5, 7, 8, and 9 of S/2017/81. The Panel, after evaluating the information
provided by the JIAT in the public domain, attaches the full case studies of those incidents in annex 60.
The Panel, in contrast to the JIAT findings, confirms that: 1) the Saudi Arabia-led coalition was responsible
for those air strikes; and 2) in the absence of any credible evidence to the contrary including the military
objectives, which can only be provided by the Saudi Arabia -led coalition, evidence still strongly
demonstrates that the Saudi Arabia-led coalition violated IHL in those incidents.

7. IHL requires military commanders and those responsible for planning, authorizing and executing
decisions regarding attacks to take all feasible precautions to avoid, and in any event to minimize, incidental
loss of civilian life, injury to civilians and damage to civilian objects. Air strikes that disproportionately affect
civilians and civilian infrastructure are veritable threats to the peace, security and stabi lity of Yemen.

__________________
9
This obligation to respect and ensure respect under common article 1 of the Geneva Conventions of 12 August 1949 is
not limited to those coalition States that actively participated in this air strike as stated in the updated commentary.
“The duty to ensure respect … is particularly strong in the case of a partner in a joint operation, even more so as this
case is closely related to the negative duty neither to encourage nor to aid or assist in violations of the Conventions. The
fact, for example, that a High Contracting Party participates in the financing, equipping, arming or training of the armed
forces of a Party to a conflict, or even plans, carries out and debriefs operations jointly with such forces, places it in a
unique position to influence the behaviour of those forces, and thus to ensure respect for the Conventions ”.
10
UN figures. See “Press briefing note on Yemen, Cambodia and Guatemala”. Media and witnesses reported that 60
people died, and 13 were injured. In accordance with Panel methodology in annex 2, the P anel relies on UN data when
the casualty figure is above ten. The Panel has requested, and is awaiting, an update on the figures from the UN OHCHR.
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Appendix A to Annex 58: Maritime attack against Somali migrant boat, Hudaydah on 16 March 2017 11

I. Introduction

1. This case study aims at identifying acts considered by the Panel as potential violations of IHL. This annex
includes the Panel’s findings on the incident relating to an attack on a boat carrying civilian migrants that occurred
on 16 March 2017, within 60 nautical miles (nm) off the Yemeni Red Sea coast. 12

2. This incident took place in a maritime area where there has been a recent escalation of hostilities. All the
available evidence points to the incident being directly linked to the Yemen conflict. Given that no Member State
or organization has so far accepted responsibility for the incident, the Panel is currently discounting the possibility
that the incident was a result of a legitimate law enforcement operation permitted under Article 73 of the United
Nations Convention on the Law of the Sea, unless further evidence to the contrary is found.

II. Background 13

3. On the night of 16 March 2017,14 a small vessel carrying approximately 146 passengers 15 was attacked in
the Red Sea off the coast of Yemen. There were at least 42 fatalities, which included 11 Somali women, 16 and 34
Somalis, including eight children, were injured.17 The vessel, which contained predominantly Somali nationals,
was sailing away from Yemen when the incident occurred. 18 Sources state that some of the migrants had left al-
Kharaz camp in Ras al-Ara in Lahij Governorate in Yemen and that the boat was destined for Sudan.19 Survivors
state that late in the night of 16 March 2017, a large vessel approached the boat and ordered the boat to stop. When
the boat proceeded without stopping, rockets were fired that did not impact on the boat. The helicopter, highly
likely to have come from the large vessel, fired on the boat for five minutes and then circled the boat and fired
again from another direction resulting in the damage and injuries documented in this case study. 20 The helicopter
then left, as did the vessel. After 30 minutes21 the boat proceeded to shore, without encountering further resistance
or any assistance.

__________________
11
This case study was included in the mid-term update submitted to the Committee on 28 July 2017. An update d version
is included here.
12
Some accounts state that the vessel was between 30 - 55 nm off the coast of Yemen when the incident occurred. As far
as the Panel is aware, there were no distress call made to the shore and there is no open source record of th e geo-
location of the incident. The Government of Yemen claims a territorial sea out to 12 nm from their coast, a contiguous
zone of 24 nm and an exclusive economic zone out to 200nm. This is in accordance with the United Nations Convention
on the Law of the Sea (UNCLOS) www.un.org/depts/los/convention_agreements/texts/unclos/unclos_e.pdf , which
Yemen ratified on 21 July 1997 and acceded to the subsequent Agreement t hat amended the original convention on
13 October 2014.
13
For media coverage on the issue, see http://ca.reuters.com/article/topNews/idCAKBN16O0UI-OCATP,
http://www.euronews.com/2017/03/17/dozens-of-somali-refugees-killed-in-airstrike-off-yemen,
https://ethiocritical.com/2017/06/06/saudi-chopper-massacre-analysis-of-the-deaths-of-42-somali-refugees-at-sea-and-
why-justice-is-beyond-them/amp/. For the Government of Somalia’s initial response, see
http://www.independent.co.uk/news/world/middle-east/saudi-arabia-led-coalition-blamed-somalia-deadly-attack-boat-
refugees-fleeing-yemen-a7637456.html.
14
Some witnesses stated that the attack occurred after around 21.00 hours.
15
This included four Yemenis.
16
In Yemen, women are not considered likely to engage in hostilities. Under IHL, women, like children are afforded
special protection.
17
OHCHR. See also http://www.unhcr.org/news/press/2017/3/58cc01754/news-comment-unhcrs-spokesperson-william-
spindler-attack-refugee-boat-yemen.html. UNHCR reports that at least 42 were killed in the incident,
www.unhcr.org/news/press/2017/3/58cfe9824/unhcr-condemns-refugee-deaths-yemen-calls-inquiry.html.
18
Source: UN.
19
UN. Some sources stated that the boat stopped at many unspecified locations along the path t o pick up migrants who
joined the journey.
20
Testimony from Panel sources, testimonies shared by two organizations, interviews with UN agencies, and
international organizations, Somali diaspora, information/ reports provided by four international organiza tions, and
open source documentation. There were no reports of the shots being fired from the vessel.
21
Sources informed the Panel that those alive hid themselves beneath the bodies of the dead and remained motionless
for approximately 30 minutes to avoid further attack.
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4. The Panel has not obtained any evidence that demonstrates the presence of any fighters, weapons or
military equipment in the vessel that would have made the vessel a legitimate military target, nor had any party to
the conflict alleged the boat to be a military target (see paragraph 20). The Panel’s request to visit the site to
interview survivors and inspect the boat was denied by the Houthi-Saleh alliance.22

Figure A.58.1
Migrant boat in port after attack (17 March 2017) 23

III. Technical analysis 24

A. Wound ballistics and calibre

5. The Panel analysed imagery from a range of sources that was taken on 17 and 22 March 2017. From the
immediate post-incident imagery of 17 March 2017, which included human remains still on the vessel, wounds
were identified that had all the characteristics of the penetrating and perforated trauma 25 typical of that caused by
the impact of a high velocity small arms round. It is almost certain26 that the wounds had been caused by small
arms fire from a weapon of a calibre of no more than 7.62mm.

B. Location of firing point

6. The circumstances surrounding the incident mean that only the perpetrator themselves can confirm the
exact geo-coordinates the weapon was fired from. All forensic evidence from the firing point would remain on the
firing platform or be lost to the sea. Notwithstanding this, examination of physical forensic evidence on the small
vessel itself provides indicators as to the direction and altitude of the firing point.

7. Examination of the imagery taken on 22 March 2017 and obtained by the Panel identified a bullet strike
from a small calibre high velocity round of between 5.56mm to 7.62mm in one of the blue barrels on the deck of
the vessel (figures A.58.2 to A.58.5). The bullet has perforated the top of the barrel and the kinetic energy of impact
has caused plastic deformation to the barrel material in the area immediately surrounding the bullet strike.
Figure 1.X.5 shows the damage to the hull of the vessel caused by a bullet perforating the hull from the inside to
outside. Larger calibre bullets (12.7mm and above), or cannon rounds (20mm and above) would have caused
substantially more damage than that shown in the imagery.

__________________
22
Letter to Panel dated 23 March 2017.
23
Photos contained in this case study were obtained from three confidential sources who collected the imagery
independently of each other and these photos were verified against multiple different open source imagery.
24
The Panel has consulted with an independent ballistic forensic scientist Mr. Phili p Boyce BSc, MSc, who agrees with
the technical analysis of the Panel.
25
Penetrating trauma occurs when the bullet remains within the human body. Perforating trauma occurs when the bullet
passes through the human body. In the case of perforating trauma fro m a high velocity projectile the exit will typically
be larger than the entry wound.

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Figure A.58.2 Figure A.58.3

Bullet strike on blue barrel27 Bullet strike on blue barrel

Figure A.58.4 Figure A.58.5

Bullet strike on blue barrel Bullet strike on hull28

8. Closer examination of figures A.58.3 to A.58.5 also clearly shows a directional impact strike
indicating that the round was fired from a direction forward of the vessel. This direction correlates with
the training given to armed forces that are taught that the ideal firing position from a movin g platform to a
moving target is generally with the target moving directly towards you. This reduces the need for lateral
deflection 29 when aiming, and also makes best use of the ‘beaten zone’ of a machine gun as it means the
target is moving into the impact zone and not out of it.
9. The beaten zone of a machine gun is the elliptical pattern formed by the rounds striking the ground or the
target. The size and shape of this beaten zone changes when the range to the target changes or when the machine
gun is fired from differing altitudes. On uniformly sloping or level terrain, the beaten zone is long and narrow. As
the altitude of the machine gun increases, its attitude to the target changes and the relative beaten zone becomes
__________________
27
Image source: Confidential.
28
Source: https://www.youtube.com/watch?v=-Dl4SnO59D8.
29
Deflection is a technique used for effectively firing a projectile at a moving target, which is also known as "leading
the target". It means shooting ahead of a moving target so that the target and projectile will collide.
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shorter and slightly wider. Figures A.58.6 to A.58.8 illustrate how the beaten zone of a machine gun will change
dependent on its platform. In this case: 1) normal land; 2) the deck of a ship; and 3) from an aerial platform such
as a helicopter.

Figure A.58.6 Figure A.58.7 Figure A.58.8

Beaten Zone (MG on Beaten Zone (MG on Deck of Beaten Zone (MG on
Ground) Ship) Helicopter)

10. The Panel finds it highly unlikely that a surface attack from another small vessel took place as: 1) the
gunshot damage on the blue barrel (figures A.58.3 and A.58.4) was not from low angle trajectory high velocity fire;
and 2) the humans on the vessel would have shielded the blue barrel from low angle trajectory high velocity fire.

Figure A.59.9
Bullet trajectory analysis (side view)

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Figure A.58.10
Bullet trajectory analysis (plan view)

11. The Panel finds it unlikely that a surface attack from a weapon mounted on a naval vessel was the cause
of the attack based on the analysis of the attack angle estimated in paragraph 8 above, but cannot discount the
possibility of a naval vessel being present in the local area. Table A.58.1 shows the distances at which various
vessel types would have to have been located for rounds from a weapon on their deck to hit the migrant boat based
on the attack angle established in figure A.58.9.

Table A.58.1
Bullet trajectory analysis

Trajectory angle Range Trajectory angle Range

Height (m) (m)
Ser Vessel type (m) Degrees TAN Degrees TAN

1 Corvette (Deck) 4.2 15 0.268 15.7 20 0.36 11.5

2 Corvette (Bridge roof) 13.1 15 0.268 48.9 20 0.36 36.0
3 Frigate (Deck) 9.4 15 0.268 35.1 20 0.36 25.8
4 Frigate (Bridge roof) 16.3 15 0.268 60.8 20 0.36 44.8
5 Destroyer (Deck) 6.8 15 0.268 25.4 20 0.36 18.7
6 Destroyer (Bridge roof) 14.9 15 0.268 55.6 20 0.36 40.9
7 Aircraft Carrier (Flight deck) 16.5 15 0.268 16.5 20 0.36 45.3
8 Aircraft Carrier (Bridge) 31.7 15 0.268 31.7 20 0.36 87.1
9 VLCC 30 (Deck) 17.1 15 0.268 17.1 20 0.36 47.0
10 VLCC (Bridge wing) 46.4 15 0.268 46.4 20 0.36 127.7

12. This analysis clearly shows that any attack from another vessel would have to have been so close that the
passengers could hardly fail to notice it was firing at them.

13. Similarly, the analysis also clearly shows that the shots could not have been fired from the land because
the boat would have to have been so close to land (island or coast) that the passengers could not fail to notice their
proximity to the land. In this case it is probable that they would have grounded the boat before being shot at based
on the firing angle analysis, unless fired at from tall cliffs.

14. The distance/height parameters do allow for an AK47 attack from within the boat, but the Panel has found
no evidence of this possibility to date.

__________________
30
Very Large Crude Carrier.
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15. The Panel thus concludes that the attack was from an aerial platform based on the trajectory of the bullet
strike as shown in figures A.58.9 and A.58.10 and the analysis of attack angles in table A.58.1.

C. Weapon type

16. The Panel has discounted the impact of an explosive weapon (including rockets) on the vessel, as there is
no indication in any of the imagery of any explosive effects such as fragmentation, deformation or metal shear, on
materials.31 Similarly there is no photographic evidence of traumatic amputation on the casualties, which would
be expected if it were an explosive attack.

17. The calibre of the bullet (5.56mm to 7.62mm) indicates that only the following generic weapon types
could have been used for this attack: 1) assault rifle; 2) light machine gun; 3) medium machine gun; or 4) minigun. 32
There have been media reports33 that an AH64 Apache attack helicopter34 was used for the attack. However the
Panel has discounted the Apache as an attack platform as that particular helicopter only carries: 1) 30mm M230
Chain Gun; 35 2) 70mm Hydra, 36 CRV 7 37 or APKWS 38 air to ground rockets; 3) AIM-92 Stinger; 39 and/or 4)
Hellfire 40 anti-tank guided missiles as its weapon systems. It does not mount weapons of 5.56mm to 7.62mm
calibre. 41

18. It is unlikely that an assault rifle (5.56mm or 7.62mm) was the weapon system used, as the inherent
instability of the aerial platform would make accuracy difficult. Light machine guns are rarely pintle mounted 42
on airframes, thus the Panel finds it most likely that either a pintle mounted 43 medium machine gun or minigun was
the weapon system used. These are commonly mounted on virtually all naval helicopters, and examples of pintle
mounts are shown in figures A.58.11 and A.58.12.

__________________
31
It is possible that if rockets were used, as reported by an eyewitness, they missed the target and impacted in the sea.
The Panel considers this unlikely due to the size of the vessel and the accuracy of close range rocket systems.
32
The M134D 7.62mm Minigun manufactured by www.dillonaero.com. This system is in service with Saudi-Arabia-led
coalition members; 1) Saudi Arabia and 2) Yemen. The system is also in service with the following members of the
Combined Maritime Force; 1) Australia; 2) Canada; 3) Iraq; 4) Italy; 5) Jordan; 6) Republic of Korea; 7) Malaysia;
8) Norway; 9) Pakistan; 10) The Philippines; 12) Spain; 13) Thailand; 14) Turkey; 15) United Kingdom; and 16) United
States.
33
For example: 1) www.theguardian.com/world/2017/mar/17/somali-refugees-killed-helicopter-attack-off-yemen-coast;
2) http://www.independent.co.uk/news/world/middle-east/yemen-refugees-killed-helicopter-attack-on-ship-somali-
injured-government-houthi-rebel-unhcr-women-a7634751.html; and 3) www.middleeasteye.net/news/dozens-somali-
refugees-killed-yemen-helicopter-attacks-boat-1163813622.
34
www.boeing.com/defense/ah-64-apache/.
35
www.orbitalatk.com/defense-systems/armament-systems/automatic-cannons-chain-guns/docs/109493_10 M230LF
Chain Gun.pdf.
36
Air Intercept Missile. www.gd-ots.com/armament_systems/rw_hydra.html.
37
Canadian Rocket Vehicle. www.magellan.aero/product/rockets/.
38
Advanced Precision Kill Weapon System. www.baesystems.com/en-us/product/apkws-laser-guided-rocket.
39
www.raytheon.com/capabilities/products/stinger/.
40
www.lockheedmartin.com/content/dam/lockheed/data/mfc/pc/longbow -fcr-and-longbow-hellfire-missile/mfc-
longbow-fcr-pc.pdf.
41
1) Major General Ahmed al-Asiri, during a visit to London on 30 March 2017, distanced Saudi Arabia as a potential
perpetrator by claiming that Saudi helicopters “did not hold the ammunition found at the site”.
www.theguardian.com/world/2017/mar/31/saudi-arabia-yemen-military-campaign-general-ahmed-aisir-clashes-with-
critics. 2) This statement was in relation to the initial reports that an AH64 Apach e was the attack platform. At no point
did Major General Ahmed al-Asiri specifically deny that the attack platform belonged to another member State of the
Saudi Arabia-led coalition. Source: Attendee at the press conference.
42
A pintle mount is a fixed mount that allows the gun to be freely traversed and/or elevated while keeping the gun in
one fixed position.
43
There are also Moveable Weapons Mounts (MWMS) that clamp to the doorframe of a helicopter.
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Figure A.58.11 Figure A.58.12

Example of a pintle mount (minigun) 44 Example of a pintle mount (7.62mm
MMG) 45

(a) (b)
19. Based on the analysis above the Panel concludes that the damage caused in this attack was highly likely a
result of rounds fired from a medium machine gun or minigun of 7.62mm calibre mounted on a helicopter. It is
likely that this was a naval helicopter operating off a warship as: 1) the potential position of the targeted vessel in
the Red Sea at the time of the attack means that it is highly unlikely that land based assets were used; and 2) there
were reports of sightings of a large vessel in the immediate area at the time of the attack (see paragraph 3). The
only party directly engaged in the conflict in Yemen that has this capability is the Saudi Arabia-led coalition,
although many of the warships operating in the Red Sea as part of the Combined Maritime Forces (CMF), or
independently, would also have armed naval air assets.

IV. Analysis of violations of international humanitarian law 46

A. Violation of principle of distinction

20. IHL requires that a party carrying out an attack distinguish between civilians and fighters, and civilian
objects and military objectives. 47 Parties are prohibited from directing attacks against civilians. 48 None of the
parties to the conflict have advanced any claims that the vessel or its occupants had become legitimate military
targets. The UAE state media has quoted an UAE official as saying that the UAE recognized the civilian nature of
this boat prior to the incident. 49

22. At the time of the incident, the vessel was carrying over 140 individuals, including women and children,
and some of whom the UNHCR had classified as refugees. 50 The Panel has found no evidence as of yet to
demonstrate that these individuals, or the vessel, had lost its immunity from direct attack at the time of the incident.
Yet, the fact that the gunfire was repeatedly and directly aimed at the vessel and its passengers, demonstrate that
this vessel and its occupants were indeed the direct target of the attack.

__________________
44
wwwi.ytimg.com/vi/HWjQnxlvwa0/maxresdefault.jpg. Included for illustrative purposes only.
45
Credit. Taken by Technical Sergeant Dennis J. Henry Jr, USAF. © USAF. Released to public domain for fair use as ID
121129-F-PM120-898. Included for illustrative purposes only.
46
Yemen and all members of the Saudi Arabia-led coalition who have contributed air assets to military operations in
Yemen are parties to the Geneva Conventions of 1949, the Protocol Additional to the Geneva Conventions of 12 Aug ust
1949 and relating to the Protection of Victims of International Armed Conflicts (Additional Protocol I), and Protocol
Additional to the Geneva Conventions of 12 August 1949, and relating to the Protection of Victims of Non -International
Armed Conflicts (Additional Protocol II) of 8 June 1977. Customary IHL is binding on all parties to the conflict in
Yemen. See www.icrc.org for the ratification status of treaties by parties to the conflict.
47
Common Article 3 (CA3) to the Geneva Conventions of 1949 (GC 1949), Article 13 to the Additional Protocol II (AP
II) and ICRC Customary IHL Rules 1 – 10.
48
CA3 to GC 49, Article 13 to the AP II and ICRC Customary IHL Rules 1 and 7.
49
www.wam.ae/en/details/1395302603973.
50
www.unhcr.org/news/press/2017/3/58cfe9824/unhcr-condemns-refugee-deaths-yemen-calls-inquiry.html.
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23. Thus, given that: 1) there is no demonstrable evidence that the vessel or the occupants had lost their
civilian protection; and 2) the attack was clearly directed against the vessel and the occupants, there are very strong
indications that the party that carried out the attack violated the IHL principles relating to distinction.

B. Violation of principles relation to precautions and proportionality

24. IHL requires that military commanders and those responsible for planning and executing decisions
regarding attacks take all feasible precautions to avoid, and in any event to minimize, incidental loss of civilian
life, injury to civilians and damage to civilian objects. 51 IHL also imposes an obligation on parties to the conflict
to cancel or suspend an attack if it becomes clear that its attack is likely to cause excessive civilian damage. 52

26. It is not clear if and what effective advance precautionary measures were taken to minimize civilian
casualties or damage to civilian objects. It is highly likely that the vessel requested the boat to stop, and when it
failed to do so, fired rockets in its direction. It is not clear if these rockets were fired as warning shots, or were
intended to destroy the boat. However, evidence collected thus far demonstrates that the gunfire was directed
deliberately at the occupants of the boat as demonstrated in the deaths of nearly one third of the vessel’s passengers,
and serious injuries to others.

27. The Panel has found readily available public information that demonstrates that the area around the
Yemeni ‘Red Sea’ ports are regular migration routes for many migrants and refugees in the region. For example,
967 migrants from Ethiopia and Somalia arrived at the Red Sea coast in January 2017 and 1,135 in February 2017
by similar boats.53 It is reasonable to presume that the parties engaged in the conflict in Yemen were aware of these
migratory patterns and should have, thus, taken extra precautions to ensure that harm to these individuals was
minimized.

28. Additionally, the fact that the vessel was headed away from Yemen, and was full of passengers, also
significantly lessens the likelihood that the vessel was carrying weapons or fighters towards Yemen. Even if it was
suspected that this specific vessel, or vessels of this size or nature, had previously engaged in arms smuggling into
Yemen, the attack on the vessel, at the time and in circumstances where the boat was filled with passengers,
including women and children, was extremely unlikely to be proportionate response. The Panel also highlights that
even if the vessel were engaged in human smuggling at the time of the incident, 54 this would not absolve the parties
involved in the conflict from their IHL obligations.

29. The Panel takes full cognizance of the recent maritime security incidents experienced by Saudi Arabia-
led coalition and United States’ naval vessels in the Strait of Bab al Mandab and Red Sea. Yet, this would not
exempt any party to the conflict in Yemen, from their obligations under IHL to ensure that a target is a legitimate
military objective prior to attack.

C. Violations of obligations relating to those wounded at sea

30. IHL requires that “whenever circumstances permit, and particularly after an enga gement, each
party to the conflict must, without delay, take all possible measures to search for, collect and evacuate the
wounded, sick and shipwrecked without adverse distinction”. 55 It also requires that those wounded at sea
must receive medical care “to the fullest extent practicable” and “with the least possible delay”. 56

31. While there is some evidence to suggest that the party conducting the attack, desisted from further attacks,
after the civilian nature of the vessel became evident,57 there is no demonstrable evidence to suggest that they took
__________________
51
Rules 15 and 18 of the ICRC Customary Study.
52
Rule 19 of ICRC Customary Study.
53
Report of the Danish Refugee Council, www.reliefweb.int/sites/reliefweb.int/files/resources/RMMS Mixed Migration
Monthly Summary February 2017.pdf.
54
The Panel understands that at least one crew-member was arrested for human smuggling following the incident.
55
Emphasis added. ICRC Customary Law Study, Rule 109. See also CA3 to the Geneva Conventions and Article 8 of AP II.
56
ICRC Customary Law Study, Rule 110. See also CA 3 to the Geneva Co nventions and Articles 7 - 8 of AP II.
57
Some reports from eyewitnesses indicate that the firing stopped after they shone the lights of the vessel on themselves
to show that they were civilians.
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any measures to assist the dead or wounded. There were no distress calls made on behalf of the vessel, nor was
there any attempt to rescue the wounded. According to witnesses, it took the targeted vessel at least another six
hours to reach a safe port with the wounded after the incident.

32. The Panel notes a report published in the UAE state news agency. 58 The statement is attributed to a UAE
official who stated that the UAE “clearly recognized the non-military nature of the boat which was carrying a large
number of civilians… in the light of this information, the UAE Armed Forces adhered to the strict engagement rules
preventing them from targeting any non-military targets”. This statement, if accurate, indicates that the UAE had
naval assets with a surveillance capability in the area and thus either visual or radar visibility of the vessel around
the time of, or prior to, the incident. It is therefore, highly unlikely, that UAE naval assets in the vicinity remained
unaware of the incident.59 It is thus possible that they would have been in a position to assist the wounded and even
more likely that they could have evidence as to the perpetrators of the incident. The Panel has engaged with the
UAE to obtain further information surrounding the event, including if any attempts were made to rescue those
wounded at sea, but has not received a response.

V. Obligation to investigate the incident

33. UAE state media has reported that the UAE has launched an investigation into this incident. The article
stated, “investigations indicate the possibility that the boat was targeted by the Houthi rebel forces operating in the
region”.60 The Panel does not discount the possibility of another vessel being involved in the incident, but given
the technical and forensic evidence documenting the almost certain involvement of air assets in this incident, it is
highly unlikely that the Houthi-Saleh forces were responsible for this incident. This is because 1) Houthi-Saleh
forces do not have the technical capacity to launch small arms attacks from the air, 2) there is no evidence, thus far,
of external parties with such air assets, using those air assets in support of the Houthi-Saleh alliance; and 3) the
only forces with such a capability are those opposing the Houthi-Saleh forces.

34. Given the allegations that the incident may amount to a war crime, 61 parties have an obligation under
international humanitarian law to investigate. 62 This obligation is particularly incumbent upon the Government of
Yemen. Saudi Arabia,63 the UAE,64 and the United States65 have all independently denied their involvement in the
incident. The Panel notes that other Member States also have the right to vest universal jurisdiction in their national
courts over alleged war crimes.66 There are no requirements that the identity of the offender be known to initiate an
investigation, only that there is reliable and credible information that a violation may have happened. 67

VI. Attribution of responsibility

35. The Panel finds that the perpetrators could have only come from Member States that have the capability
to operate armed helicopters in the area, highly probably from naval assets. The Panel does not consider it a
coincidence that three vessels were reportedly attacked on 16 and 17 March 2017 off the coast of Hudaydah, all
allegedly being subject to helicopter gunfire or attacks from a naval vessel. A fourth boat also disappeared on
16 March 2017, with debris found subsequently and all ten on board were missing (see table 1.X.2).

__________________
58
http://wam.ae/en/details/1395302603973, http://gulfnews.com/news/uae/government/uae-denies-targeting-boat-
carrying-somali-refugees-1.1997104, http://www.emiratesnews247.com/uae-not-target-somali-refugee-boat-off-coast-
yemen/. This is the only statement from the UAE on the incident. The Panel is not aware if the UAE government has
refuted this statement.
59
The Panel notes recent media statements that the UAE is leading the operations on behalf of the Saudi Arabia-led
coalition in and around Hudaydah port. http://english.alarabiya.net/en/News/gulf/2017/03/27/White-House-considering-
potential-attack-to-liberate-al-Hudaydah-port.html.
60
www.wam.ae/en/details/1395302603973.
61
www.hrw.org/news/2017/03/26/yemen-attack-refugee-boat-likely-war-crime.
62
See in particular, Article 158 of the ICRC Customary IHL Study.
63
http://uk.reuters.com/article/uk-yemen-security-refugees-idUKKBN17112I?il=0.
64
www.wam.ae/en/details/1395302603973.
65
http://uk.reuters.com/article/uk-yemen-security-refugees-idUKKBN17112I?il=0.
66
ICRC Customary IHL Rule 157.
67
Schmitt, M. “Investigating Violations of International Law in Armed Conflict ”, p.39 Volume 2 Harvard National
Security Journal 2011.
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36. The Panel finds it is extremely unlikely that an unidentified naval vessel and a military aircraft could enter
the Bab al-Mandab strait without triggering the radar systems of the naval entities that conduct surveillance of the
strait. It is also extremely unlikely that such a military vessel and helicopter would be able to launch an assault
without triggering the same radar systems. The Member States that have these capabilities in the area include those
belonging to the Saudi Arabia led-coalition and the Combined Maritime Forces (CMF).

37. The Panel regrets that the UAE, the Saudi Arabia-led coalition, and the CMF have not cooperated with
the Panel and responded to Panel requests for information. It also regrets that the Houthi-Saleh alliance, which has
attributed responsibility for this attack to the Saudi Arabia-led coalition, denied the Panel access to Hudaydah to
investigate this incident.68

E. Similar attacks

38. The Panel notes that this incident was only one of several incidents reported in that period that occurred
off the coast of Hudaydah. Five of these incidents were recorded by the UN and Mwatana Organization. The
following incidents in table A.58.2 are presented for information purposes only, as the Panel did not independently
verify the same:

Table A.58.2
Incidents of fishing vessels (FV) being attacked

Ser Date Coastal Location Alleged Incident Comments

1 3 Feb 2017 Island off the coast of A helicopter fired Killed six and injuring
Hudaydah on the tents and seven individuals.
boats of fishermen
gathered on the
Island.

2 15 Mar 2017 Al-Durayhimi. A helicopter seen Killed two and injured

(15 miles off Turfah taking off from a five individuals. The
Island) warship, shot at the injured remained afloat
occupants of the FV on the fishing boat at sea
without warning. until late afternoon on 16
March 2017 when
volunteers pulled them to
a fishing port in
Hudaydah. No notice was
issued by any party
prohibiting access to this
fishing area.

3 15 Mar 2017 Al-Durayhimi. A FV was struck by Killed five and injured

(15 miles off Turfah a warship missile three individuals. The
Island) almost immediately occupants witnessed the
after the above previous boat (serial 2)
attack. being shot by a
helicopter. The survivors
stated that there were no
indications that they had
entered a restricted zone.

__________________
68
Letter dated 23 March 2017.
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Ser Date Coastal Location Alleged Incident Comments

4 16 Mar 2017 North of Hudaydah Ten fishermen were Parts of the boat were
reported as missing. found burned 20 miles
away from Al Teir
Mount, west to the
Eritrean waters.
5 5 Apr 2017 Off the coast of Hudaydah Fishing boat was Four killed.
shot by helicopter
gunfire.

VII. Humanitarian considerations

39. Immediately after the incident, most survivors were accommodated by the local authorities in the
Hudaydah prison because, it was said that there was no other facility in Hudaydah where they could be
accommodated. While the authorities confirmed to the UN that the survivors were not in detention in the true sense
of the word, the survivors were not allowed to leave the prison. In May 2017, the authorities transferred the
survivors from the Hudaydah Central Prison to the Immigration, Passports and Naturalization Authority detention
center in Sana’a. As at November 2017, some of those affected in this incident returned to Somalia, while some
others sought refugee status in Aden.

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Appendix B to Annex 58: Air strike on civilian residential area in Faj Attan, Sana’a (25 August 2017)

1. Background

1. At approximately 02:00 hours on 25 August 2017, explosive ordnance dropped from a military aircraft
detonated on several residential buildings in Faj Attan in Sana ’a. 69 The explosions killed 16 individuals,
including seven children and injured 17 other individuals, which included eight children. 70 The Saudi
Arabia-led coalition claimed that the strike was a result of a “technical mistake”. This was the third time
that explosive ordnance has been delivered to this area, the delivery of which is attributed to the Saudi
Arabia-led coalition, and that affected some of the same buildings. 71

II. Technical Analysis

2. Post blast analysis of the image at figure B.58.1 to B.58.4 shows damage that is typically characteristic
of the detonation of a significant quantity of high explosive, and is fully consistent with the blast damage
resulting from air strikes using high explosive aircraft bombs.

Figure B.58.1 Figure B.58.2

Post-blast damage72 Post-blast damage

__________________
69
Approximate location: 15 0 19’18.04”N, 44 0 10’42.4”E.
70
Information provided by sources on the ground and verified through media reports. See “Yemen: Hiding Behind
Coalition’s Unlawful Attacks” https://www.hrw.org/news/2017/09/08/yemen-hiding-behind-coalitions-unlawful-attacks.
In one incident, eight members of the same family died with the only survivor being a 6 -year-old child. One of the
residential buildings destroyed had no occupants, as they had left following a previous air strike on that building (see
paragraph 2). The other building had four families, some of whom were displaced persons from Ta ’izz.
71
These strikes on 28 January 2016 and 20 April 2015 in Faj Attan documented by ( S/2016/73), p 153 (recorded 25
deaths and 400 injuries in April 2015), and Human Rights Watch Report, “Yemen: War Crimes Not Addressed” recorded
six deaths in January 2016.
72
Photos contained in this case study were obtained from two confidential sources in the area.
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Figure B.58.3 Figure B.58.4

Post-blast damage Post-blast damage

III. Response of the Saudi Arabia-led coalition

3. Following the incident, the Saudi Arabia-led coalition spokesperson stated that a “technical
mistake” had resulted in the incident, without providing further substantive or convincing details. He added
that “… all procedures (related to operational planning and implementation) were correct… there was no
direct targeting of the alleged house”. 73 The target point (TP) was an alleged Houthi-Saleh Command,
Control and Communication (C3) centre at Faj Attan, Sana ’a. 74 Media released imagery, 75 attributed to the
Saudi Arabia-led coalition, provided further details on the TP (figure B.58.5). Panel imagery is at figure
B.58.6 to B.58.9.

Figure B.58.5
Imagery attributed to the Saudi Arabia-led coalition 76

__________________
73
http://www.arabnews.com/node/1151086/middle-east.
74
Around the vicinity of 15 0 19’20.50”N, 44 0 10’53.08”E.
75
http://www.arabnews.com/node/1151086/middle-east, https://uk.reuters.com/article/uk-yemen-security-strike/saudi-
led-force-admits-strike-in-yemens-capital-hit-civilians-idUKKCN1B60L8. The Panel requested the Saudi Arabia-led
coalition to confirm the authenticity of the image on September 2017; the Saudi Arabia-led coalition declined to
respond. Letter from the Kingdom of Saudi Arabia dated 10 October 2017.
76
http://www.arabnews.com/node/1151086/middle-east.
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Figure B.58.6
Imagery on 18 August 2017 77

Figure B.58.7
Imagery on 27 August 2017 78

__________________
77
Satellite imagery obtained by Panel.
78
Ibid.
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Figure B.58.8 and B.58.9

Enhanced imagery of the TP before and after the strike 79

IV. Analysis of violations of international humanitarian law (IHL)

4. In the absence of a response from the Saudi Arabia-led coalition, the Panel analyzed the applicable
law in relation to this incident based on facts gathered through its own independent investigations. 80

5. The Panel finds that in respect of the stated “technical mistake”,

(a) While it is possible for precision guided munitions to malfunction resulting in a target
error, the Saudi Arabia-led coalition has refused to provide sufficient technical detail to enable
such a judgement to be independently reached, reiterating that “Coalition forces are committed to
implementing…international humanitarian law” and that “the coalition’s activities fall outside the
scope of that (Panel of Expert’s) mandate”. 81

(b) The Panel finds that by refusing to respond the Saudi Arabia -led coalition is effectively
denying the opportunity for an independent confirmation of the Saudi Arabia-led coalition’s
position that a “technical malfunction” resulted in the deaths of 17 civilians. An independent
assessment is particularly relevant considering that the TP in satellite imagery demonst rates a
broken-down wall, which remained undisturbed post-strike.

6. In the media, the Saudi Arabia-led coalition spokesperson, Colonel Turki al-Maliki, defended the strike
as having “a legitimate military target”, which he said was a Houthi command and control centre (C3). Satellite
imagery shows a “damaged man-made wall type structure with debris” at the TP82 (see figures B.58.6 - B.58.9).

7. The Panel continues to welcome any information from the Saudi Arabia -led coalition that can be
used to independently verify that the TP was a C3 centre and further detailed information on the nature of
the technical mistake that resulted in the civilian deaths and damage to civilian infrastructure.

__________________
79
Source: Ibid. At the TP the presence of a damaged man -made wall type structure with debris is observed. The
visual changes as seen before and after the air strikes for the TP is mainly due to satellite camera view angle
difference when the images were taken, which can be observed from the different appearance of the high -rise
building in the images. There are no major changes observed for the TP from the two images.
80
This included photos and videos obtained from three sources, multiple open source imagery, statements of five
sources, which included eyewitnesses; satellite imagery, and other documentation including death certificates.
81
Letter to Panel dated 10 October 2017.
82
UN.
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Appendix C to Annex 58: Air strike on residential buildings (al-Maqadhi house) in Farah Village, Washa,
Hajjah (2 September 2017)

I. Background

1. At approximately 13:30 hours on 2 September 2017, two items of explosive ordnance dropped
from a military aircraft detonated within three minutes of each other. The EO hit several residential
buildings of the al-Maqadhi tribe 83 in Washa, Hijjah Governorate. 84 The first explosion affected residential
buildings, but did not cause any casualties. The second explosion killed two women and one child and
injured 13 others, which included one woman and ten young children. Witnesses informed the Panel that
the reason that 14 of the 16 affected were women and children was because after the first strike, the men
and the older children managed to flee to safety. The second strike did not leave enough time for the women
and the young children to escape. The casualties were also high because 2 September 2017 was the second
day of Eid - the annual day of gathering for the al- Maqadhi tribe for celebrations and resolution of tribal
conflicts.

Figure C.58.1
Remote location of the al-Maqadhi houses 85

__________________
83
The residents in this complex belong to the Al Maqhdi tribe. They are led by Sheif Mohamah Yahyah Maqhdi and
Sheik Ali Yahyah Maqhdi. They are said to be aligned to the legitimate Government.
84
At approximately 16 0 19’39.7”N, 43 0 25’10.1”E.
85
Google Earth Pro imagery of 29 January 2017.
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II. Technical analysis of physical evidence

2. The imagery at figure C.58.2 to C.58.5 shows damage that is highly indicative of the detonation
of precision-guided aircraft bombs on structures.

Figure C.58.2 86 Figure C.58.3

Paveway tail fin Crater al-Maqadhi houses (first strike)

Figure C.58.4 Figure C.58.5

Damage to al-Maqadhi houses (second strike) Damage to al-Maqadhi houses

3. The Panel finds that:

(a) Technical analysis of imagery (figure C.58.2) of the fragment recovered from the explosion
indicates that one explosive device was fitted with a Paveway guidance unit for a high explosive (HE)
aircraft bomb. The fragment is the remnants of the rear fin from a Paveway guidance unit;

(b) Photogrammetry of the imagery at figure C.58.3 estimates that the crater diameter was 3.4 m in
sandy soil, and thus from crater analysis the explosive mass is estimated to be in the region of 940kg (TNT
equivalent). This equates to the explosive content of a Mark 84 2000lb aircraft bomb;

(c) The only military entity operating the type of aircraft in the area that has the capability to aerially
deliver such precision-guided munitions is the Saudi Arabia-led coalition; and

__________________
86
All images in this annex were obtained from residents in the complex or human rights investigators who visited in the
aftermath.
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(d) The Panel is concerned that the damage to the top of the building shown in figure C.58.4 may be
an entry points (hole) initially caused by the kinetic energy from a third unexploded aircraft bombs. These
bombs have hardened weapons grade steel cases, which would have easily penetrated the thin-skinned
roofs before it should have detonated on the floor of the building. The lack of damage the rest of the
building is an indicator that there may be an unexploded bomb (UXO) under the floor of that building.
The Saudi Arabia-led coalition has been asked if they would respond on humanitarian grounds to confirm,
or otherwise, whether a third aircraft bomb was used in this strike.

IV. Response of the Saudi Arabia-led coalition

4. The Saudi Arabia-led coalition was provided the opportunity to respond, but chose not to citing
that “the coalition’s activities” fall outside the mandate of the Panel of Experts. 87

V. Analysis of violations of international humanitarian law (IHL)

5. In the absence of a response from the Saudi Arabia-led coalition, the Panel analysed the
applicable law in relation to this incident based on facts obtained during its own independent
investigations. 88 The Panel finds that:

(a) Based on the use of precision-guided weapons, the remote location of the target site, and
the repeated strikes, the al-Maqadhi residential complex was almost certainly the intended target
of the two air strikes;

(b) The Panel found no explanation in the public domain as to why this residential area,
which is prima facie a civilian object immune from direct attack, was considered by the Saudi
Arabia-led coalition to be a legitimate military objective;

(c) The Panel also found no demonstrable evidence that the occupants of the house, who as
civilians were prima facie immune from attack, had lost their civilian protection;

(d) While the Panel is not convinced that the Saudi Arabia-led coalition directed its air strike
against a legitimate military target, 89 even if it had, the Panel finds that there are serious concerns
whether it respected IHL principles of proportionality and precautions in attack given that 14 of
the 16 affected were women and children. Any proportionality assessment should have taken int o
consideration that given the celebrations of the day there was a high likelihood that civilians,
including women and children would be in the complex; and

(e) The cumulative effect on civilians and the civilian object also demonstrates that if
precautionary measures were taken, they were largely inadequate and ineffective. If
precautionary measures were not taken, it is incumbent on the Saudi Arabia -led coalition to
demonstrate why in those circumstances, such precautionary measures were not feasible. 90

__________________
87
Letter to Panel dated 10 October 2017.
88
This included photographs obtained from two sources, statements of four sources, and an investigation report issued
by the National Commission of Inquiry of Yemen (document with Panel).
89
See Article 13 (1) and (2) of Protocol II Additional to the Geneva Conventions of 12 August 1949, and relating to the
Protection of Victims of Non-International Armed Conflicts (AP II) and Article 13 (3) on the loss of protection. See also
CIHLR 1, 5 and 6. Prosecutor v Dario Kordic and Mario Cerkez (2005), para. 54.
90
For example, if the target were some of the male occupants or guests, it is possible that they could have been targeted
outside this highly residential area.
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Appendix D to Annex 58: Air Strike on a night market, Sa’dah (1 November 2017)

I. Background to Events

1. At approximately 02:00 hours on 1 November 2017, explosive ordnance dropped from a military
aircraft detonated in or close to a hotel in the busy night market in Saher district of Sa’dah governorate. 91
The explosion resulted in 31 deaths and 26 injured in Sahar district, Sa ’dah governorate, and of these at
least eight were children. 92

2. The Saudi Arabia-led coalition admitted striking the market and stated that “the target was the
gathering point for some armed Houthi militants”. 93

3. One witness informed the Panel, that while there is was a regular presence of two vehicles
belonging to Houthi fighters, approximately 1,000m from the market, all sour ces confirmed that the
market was civilian in nature, composing of hotels, restaurants, and coffee shops. The hotel that was
affected by the airstrike was identified as an overnight lodging used by Qat farmers and their families
who regularly visited the market.

II. Technical Analysis

4. The imagery at figure D.58.1 to D.58.2 shows damage that is highly indicative of the detonation
of precision-guided aircraft bombs.

Figure D.58.1 Figure D.58.2

Post strike damage in outer night market area 94 Post strike damage in outer night market
area95

__________________
91
United Nations, See https://reliefweb.int/report/yemen/statement-humanitarian-coordinator-yemen-jamie-mcgoldrick-
continued-violence-affecting.
92
A local hospital informed the Panel that it received 29 dead and 26 injured: 2 children were recorded as having died,
and six others were injured. Three bodies were burnt beyond recognition.
93
The Saudi Arabia-led coalition says that the strike hit a legitimate target in Yemen, see
https://www.reuters.com/article/us-saudi-yemen/saudi-led-coalition-says-strike-hit-a-legitimate-target-in-yemen-
idUSKBN1D40OE. Initial statement on the incident: “Coalition to Restore Legitimate Government of Yemen: We
closely follow up media outlets' allegations on targeting market in Sa ’dah”
http://www.spa.gov.sa/viewfullstory.php?lang=enandnewsid=1683445 .
94
Confidential source.
95
Confidential source.
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Figure D.58.3
EO impact crater 96

3. The Panel finds from photogrammetry of the imagery at figure D.58.3 that the crater diameter was
approximately 3.6 m in sandy soil, and thus from crater analysis the explosive mass is estimated to be in the region
of 940kg (TNT equivalent). This equates to the explosive content of a Mark 84 2,000lb aircraft bomb.

4. The only military entity operating the type of aircraft in the area that has the capability to aerially
deliver such precision-guided munitions is the Saudi Arabia-led coalition.

III. Response of the Saudi Arabia-led coalition

5. The Saudi-led coalition accepted responsibility for this airstrike, but justified it as a “gathering
point” for Houthi fighters (see paragraph 2 above).

IV. Analysis of violations of international humanitarian law (IHL)

6. In the absence of a timely response from the Saudi Arabia -led coalition to the Panel, the Panel
analyzed the applicable law in relation to this incident based o n facts obtained during its own independent
investigations. 97

7. It is possible that some individual fighters may have been present amongst civilians, as Houthi
fighters frequent the market to buy Qat and other commodities. However, there was no information on
the public domain or from witnesses that supported a finding that the market was a “gathering point” for
Houthi fighters at the time of the air strike, but a gathering point for civilians.

8. Even if the Saudi Arabia-led coalition targeted Houthi fighters, the Panel is not convinced that
the Saudi Arabia-led coalition respected relevant principles of IHL, including those relating to
proportionality, 98 for the following reasons:

(a) There is no evidence to support a finding that:

(i) There were Houthi-Saleh fighters in the market; and

__________________
96
Credit: Naif Rahma, Reuters.
97
This included photographs obtained from two sources, interviews with three sources, and a report issued by a local
hospital. Open source images were verified by witnesses. Information from the UN.
98
Under IHL “launching an attack which may be expected to cause incidental loss of civil ian life, injury to civilians,
damage to civilian objects, or a combination thereof, which would be excessive in relation to the concrete and direct
military advantage anticipated, is prohibited”. (Emphasis added). See CIHLR 14.
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(ii) Those fighters were of sufficient military value to justify collateral damage to
the civilians and civilian objects and consequently, the Saudi Arabia -led coalition met
its obligations relating to proportionality.

(b) The Saudi Arabia-led coalition did not provide the Panel with information that
demonstrated that a significant number of those who died or injured were Houthi fighters or that
the effects on civilians and civilian objects were not excessive in relation to the concrete and
direct military advantage anticipated.

(c) This likelihood of excessive harm to civilians and civilian objects could have reasonably
been anticipated in the circumstances because:

(i) The market place was a civilian object prima facie immune from attack;

(ii) It was also a civilian gathering point;

(iii) The market was functional on the night of the air strike; and

(iv) The timing of the attack would be such as to cause a disproportionately high
number of civilian causalities given that it was a night market.

9. IHL requires military commanders and those responsible for planning and executing decisions
regarding attacks to take all feasible precautions to avoid, and in any event to minimize, incidental loss
of civilian life, injury to civilians and damage to civilian objects. The fact that the Saudi Arabia -led
coalition knew that this was a market place and thus a civilia n location where there would ordinarily be
a congregation of civilians, meant that they should have been particularly vigilant when undertaking a
proportionality assessment and making use of all feasible precautionary measures to minimize the
incidental loss of civilian life and damage to civilian property. 99 It is reasonable to expect that the Saudi
Arabia-led coalition should have taken into account these factors given that the fact that information that
the target location was a civilian night market was readily available. 100

10. The Panel remains concerned that the Saudi Arabia-led coalition continues to justify air strikes in
civilian gathering areas by referring to it as “Houthi gatherings”, without providing any further information
that may assist an independent verification if the relevant IHL principles were met (see also S/2017/81 for
Khamees Mustaba market).

__________________
99
See commentary to CIHLR 14, and the United States Department of Defense Law of War Manual (2015), p.1033,
which requires combatants to assess in good faith the information that is available to them, when conducting attacks.
100
See CIHLR 14.
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Annex 59: Joint Incident Assessment Team findings and recommendations

1. The establishment of JIAT is a positive step given that it is possibly the only entity outside the
Joint Force Command that has access to sensitive information on military operations. Yet, the Panel finds
that there is a lack of transparency in the impleme ntation of JIAT recommendations, which may undermine
JIAT’s credibility.

2. The JIAT found that of the 43 air strikes that were attributed to the Saudi Arabia -led coalition 1:

(a) 11 air strikes did not take place against the identified targets;

(b) In 30 incidents, the Saudi Arabia-led coalition did not violate IHL; and

(d) In two incidents, the Saudi Arabia-led coalition violated IHL.

3. The Panel has, based on public information and its investigations, observed that there needs to be
a further examination of some of these cases to eliminate any doubts relating to violations of IHL by the
Saudi Arabia-led coalition. In this context, the Panel highlights the different findings of the Panel and JIAT
and the contradictions between statements of the Saudi Arabia -led coalition and the JIAT on the Saudi
Arabia-led coalition’s responsibility and rationale for some air strikes.

Table X.1
JIAT and Panel findings on the same investigations

Date Location JIAT findings 2 Panel findings

15 Mar 2016 Khamis Intelligence indicated a large This Panel concluded in S/2016/81 that the
Market, gathering of Houthi recruits near market was active on that date and while it
Hijjah the market. Market has no activity was possible that some fighters (10) were
except on Thursday. Strike was on present, it was unconvinced that IHL on
Tuesday. The gathering was 34 km proportionality and precautionary measures
from the Saudi border. were respected.
9 Aug 2016 Al Aqil The factory was not targeted on 9 The Panel concluded in S/2016/81 that an HE
Food August 2016. The closest target bomb delivered from air caused the damage.
factory, point was 7 km from the factory It concluded that the only known entity
Sana’a. capable of carrying out the air strike was the
Saudi Arabia-led coalition.
15 Aug 2016 Abs Pilot followed a vehicle, which had The Panel concluded in S/2016/81 that there
Hospital, left a site of an air strike and were 43 causalities, while JIAT concluded 20.
Hajjah struck it next to a building that The Panel concluded that the vehicle was a
does not bear any marks that civilian vehicle carrying a wounded civilian,
would indicate before the strike MSF shared hospital coordinates and
that it is a hospital. The vehicle coalition was aware of the hospital’s location
was a legitimate military target. and that it violated IHL.
13 and 22 Sep Alsonidar Between 4 – 23 September 2016, The coalition spokesperson stated that the
2016 Complex six ballistic missiles were launched complex "is now becoming a military
towards Saudi Arabia from manufacturing unit specialized in producing
northern Sana’a. Three trucks and pipes Houthis use to assemble local-made
an armed military vehicle entered missiles… " 3 The Panel reviewed evidence
factory complex. Targeted complex but could not find evidence to support the
because of continued use of the conclusions of JIAT.
complex “in supporting the war
effort”.

__________________
1
The press released related to the 43 air strikes were provided by JIAT to the Panel.
2
JIAT findings are summarized in this annex. Full press releases have been shared by JIAT with the Panel for 41 of the
43 cases.
3
http://www.reuters.com/article/us-yemen-security-idUSKCN11J27V.
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Date Location JIAT findings 2 Panel findings

24 Sep 2016 Ibb The actual target, a military HQ, The Panel concluded in S/2016/81 that the
residential was 1070 meters from the factory complex was targeted using a
house residential complex. The coalition precision-guided HE aircraft bomb and only
did not strike the residential party to the conflict with the known capability
complex. to deliver precision guided HE aircraft bombs
is the Saudi Arabia-led coalition.
8 Oct 2016 Funeral The Air Operations Centre in The Panel found in S/2016/81 that the Saudi
Hall, Yemen did not operate in Arabia-led coalition violated several
Sana’a accordance with Coalition principles of IHL, including those protecting
command and control regulations, hors de combat, in this double tap attack. The
nor rules of engagement and Panel has requested, but not received,
procedures. The coalition aircraft information on the measures taken to
wrongly targeted the location, implement JIAT’s recommendations.
resulting in civilian deaths and
injuries.

Table X.2
JIAT and Saudi Arabia-led coalition’s findings on the same incidents

Coalition statements in the immediate aftermath of

Date Location JIAT findings the incident

30 Aug 2015 Al-Sham The Saudi Arabia-led coalition On 30 August 2015, the “Coalition spokesman
Water executed a (close air support Brigadier General Ahmed Asseri denied the
Factory mission), on an anti-air artillery strike had hit a civilian target, saying it was a
(AAA), stationed in proximity to location used by the Houthis to make IEDs
the factory. Due to weather effect and to train African migrants whom they had
and clouds over the target, the forced to take up arms.” 4
bomb deflected from its path and
hit warehouse of the factory,
destroying it and resulting in some
deaths and injuries.
6 Oct 2015 Wedding, There were no air operations on On 08 Oct 2015, the Saudi Arabia-led
Dhammar the said date, but on 7 October coalition stated that it did not conduct any air
2015, the Saudi Arabia-led strikes in Dammar. 5
coalition targeted a group of
armed vehicles in the same area.
26 Oct 2015 Haydan The building was a medical facility The coalition denied hitting the hospital. 6
Hospital, used as a military shelter. MSF
Sa’dah should have been informed of the
withdrawal of protection.
2 Dec 2015 Mobile High value military target close to MSF informed Saudi Arabia of the location.
Clinic, clinic. The clinic should have been One hour before the strike, Saudi Arabia
Ta’izz removed “so as not to be expose it stated, “be sure that we will not approach
to any incidental effects.” those locations and your team has to stay
there for the time being”. 7
__________________
4
https://www.reuters.com/article/us-yemen-security/saudi-led-coalition-air-strike-kills-36-yemeni-civilians-residents-
idUSKCN0QZ09P20150830.
5
“Death toll from air strike on Yemen wedding party rises above 130: m edics” at https://www.reuters.com/article/us-
yemen-security/death-toll-from-air-strike-on-yemen-wedding-party-rises-above-130-medics-
idUSKCN0RT0XT20150929, and http://www.aljazeera.com/news/2015/10/deadly-air-strike-reported-yemen-wedding-
party-151008073704528.html.
http://www.gulf-times.com/story/457994/Air-strike-kills-13-at-Yemen-wedding-coalition-den.
6
“Yemeni MSF hospital bombed, Saudi-led coalition denies responsibility” at http://www.reuters.com/article/us-yemen-
security/yemeni-msf-hospital-bombed-saudi-led-coalition-denies-responsibility-idUSKCN0SL0VK20151027.
7
MSF, “MSF incident report: airstrike on the Ta’izz health clinic, Houban District, Taiz City, Yemen, 2 December
2015” at https://reliefweb.int/sites/reliefweb.int/files/resources/Yemen_Taiz_investigation_summary_final.pdf .
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Coalition statements in the immediate aftermath of

Date Location JIAT findings the incident
13 Aug 2016 Al Fadhil The school was not targeted. The On 14 August 2016, the Saudi Arabia-led
school, closest targets that day were coalition spokesman stated that the strikes hit
Sa’dah “warehouses and weapons’ a Houthi training camp, killing militia
storage” located 10 km from the fighters, including the leader Yehya Munassar
school. Abu Rabua; “The site that was bombed… is a
major training camp for militia…Why would
children be at a training camp?”, “When jets
target training camps, they cannot distinguish
between ages” and that Yemen’s government
had confirmed to the coalition that “there is
no school in this area”. 8
UNICEF confirmed that 7 children were killed
and 21 injured, who were studying at the
school during the strike. 9 The other recorded
strike that day was a house of a head of a
school.

__________________
8
“Saudi-led coalition strikes militant training camp in Yemen” https://www.saudiembassy.net/press-release/saudi-led-
coalition-strikes-militant-training-camp-yemen, “At least 10 children have been killed in an airstrike on school in
Yemen” at http://www.thejournal.ie/yemen-airstrike-children-killed-2927896-Aug2016/, “Coalition says strike hit
militant training camp in Yemen” http://gulfnews.com/news/gulf/yemen/coalition-says-strike-hit-militant-training-
camp-in-yemen-1.1878902, “Saudi-led coalition strikes militant training camp in Yemen”
https://www.saudiembassy.net/press-release/saudi-led-coalition-strikes-militant-training-camp-yemen.
9
“UNICEF Statement on the killings of children in Sa’dah, Northern Yemen” at
https://www.unicef.org/media/media_92095.html.
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Annex 60: Case studies of airstrikes documented by the Panel in 2016 and the
JIAT findings

1. The Panel takes note of the Joint Incident Assessment Team (JIAT) findings that differ from Panel
findings in 2016 on the case study summaries contained in serials 5, 7, 8, and 9 of S/2017/81. The Panel,
after evaluating the information placed by the JIAT in the public domain, attaches the full case studies of
those incidents in the following appendices to enable an independent assessment of the IHL violations
attributed to the Saudi Arabia-led coalition. The case studies were not included in S/2017/81 to maintain
brevity of that report. After careful consideration of the findings of JIAT, the Panel continues to find that:

(a) The Saudi Arabia-led coalition was responsible for the following air strikes; and

(b) The evidence strongly demonstrates that the Saudi Arabia -led coalition violated IHL.

Table 60.1
Air strikes affecting civilians and civilian infrastructure documented in 2016

Civilian Civilian Effect on civilian

Appx Date Location Type of EO fatalities injured objects

A 9 Aug 2016 Nahda, High Explosive 10 13 Snack factory

Sana’a (HE) aircraft destroyed.
bomb
B 13 Sep 2016 Ban al- Mk 82 HE 0 0 Alsonidar
Hareth, bomb / factory complex
Sana’a Paveway IV severely
damaged.
C 22 Sep 2016 Ban al- GBU-24 / 0 0 Alsonidar
Hareth, Paveway IV factory complex
Sana’a severely
damaged.
D 24 Sep 2016 Mafraq Mk 82 HE 9 7 Civilian house
Jiblah, Ibb bomb / destroyed.
Paveway

2. The Panel will also provide in brief its findings in two further investigations in 2016 that were
also not enclosed in full in S/2017/81 to enable full disclosure of the Panel’s findings and to assist further
independent investigations into these incidents.

Table 60.2
Air strikes affecting civilians and civilian infrastructure documented in 2016

Civilian Civilian Effect on civilian

Appx Date Location Type of EO fatalities injured objects

E 25 Mar T’baisha, Not confirmed 10 0 Civilian house

2016 Ta’izz destroyed.
F 25 May Mahala, Mk 82 HE bomb 0 2 Water bottling
2016 Lahj / Paveway factory
destroyed.

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Appendix A to Annex 60: Al Aqil Factories, Nahda District, Sana’a (Food Snack Factories) (9 August 2016)

1. The JIAT concluded that the Saudi Arabia-led coalition did not target the Al Aqil factory complex. 1

2. The Panel finds that a technical analysis of evidence demonstrates beyond a reasonable doubt that the
factory complex was targeted using a precision-guided high explosive (HE) aircraft bomb. The only party to the
conflict with the known capability to deliver such precision guided HE aircraft bombs is the Saudi Arabia-led
coalition. This case study contains the Panel’s findings of 2016.

I. Background

3. On 9 August 2016, at approximately 10:00 hours, explosive ordnance dropped from a military aircraft
detonated on a factory complex that produces food snacks in Nahda District, Sana’a. 2 The explosion and the
resultant fire killed ten civilians and injured 13, and destroyed the factory and the production equipment. 3 There
was a military maintenance centre adjacent to the factory (figure A.60.1), yet it was not affected by air strikes that
day.4

4. On 19 January 2016, another factory in the same complex was damaged by an air strike (see image
A.60.3).5

Figure A.60.1 Figure A.60.2

Locations of the military maintenance camp Pre-air strike factory complex (10 January 2016)
(red outline) and the factory complex (green
outline)

__________________
1
Press release with Panel.
2
Around 15°23'42.0"N, 44°11'41.9"E.
3
For example, see video at “Saudi-Led Coalition Resumes Bombing of Yemeni Capital After Talks Collapse ” at
http://www.nytimes.com/2016/08/10/world/middleeast/ye men-sana-airstrikes.html?_r=0.
4
Google Earth.
5
Owner stated that a subsidiary branch of the factory in Damrah was also hit by air strikes on 25 January 2016.
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Figure A.60.3 Figure A.60.4

First strike damage (29 February 2016) Second strike damage (Post August 2016)

II. Technical analysis of physical evidence

5. The damage to the factory was indicative of that caused by the detonation of a large quantity of high
explosive. There was clear evidence of the destruction of structural components of the building that equate to the
damage to be expected from the shockwave of an explosion. The entry points (holes) (figures A.60.5 and A.60.6)
and the damage to the concrete floor at the impact point of the explosive ordnance were both caused by the kinetic
energy from the EO, which have hardened weapons grade steel cases. The aircraft bombs easily penetrated the thin-
skinned roofs before detonating on the concrete floor of the factories.

Figure A.60.5 Figure A.60.6

Damage at impact point of EO 6 Damage at impact point of EO

1.

6. The only party to the conflict with the known capability to deliver precision-guided HE aircraft bombs is
the Saudi Arabia-led coalition.

III. Response of the Saudi Arabia-led coalition

7. On 8 December 2016, the JIAT denied the involvement of the Saudi Arabia-led coalition. It stated:

“The Embassy of the Kingdom of Sweden has claimed that the food factory of Swedish honorary consul
Mr. Abdullah Ahmed al-Aqil in (Sana’a) city suffered aerial bombardment on 9 August 2016 resulting in
the death of 16 workers. Having investigated the facts and circumstances of the claim, (JIAT) found that,
the coalition forces have struck two targets that day; the first target is a telecommunication antenna used
__________________
6
All imagery was obtained from individuals working in the factory.
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for military purposes in (Ayban) mountain, western (Sana’a), 7 km away from the subject factory. The
second target is a cave used for military purposes in eastern (al-Nahdyan) mountain, southern Sana’a, 10
kilometers away from the subject factory. Thus, the said two locations are considered legitimate military
targets according to the rules of engagement and the rules of the international humanitarian law. In light
of that, (JIAT) did not find evidence that the collation forces struck the said factory. Thus, the coalition
forces are not responsible for the alleged attack on the factory”. 7

8. The Panel has not yet received a response to a request for information made to the Saudi Arabia-led
coalition.8

IV. Analysis of violations of IHL

9. The Panel finds that the Saudi Arabia-led coalition was responsible for this air strike (paragraphs 5
and 6), and that the use of precision-guided weapons demonstrates that the factory complex was the intended target
of these air strikes. In 2016, the Panel found that there was no evidence to support a finding that the complex had
become a legitimate military objective.

10. Thus, the Panel concludes that the factory complex was prima facie a civilian object, immune from direct
attack and that individuals within the factory had not lost their civilian protection. 9 Therefore, unless the Saudi
Arabia-led coalition provides information to the contrary, evidence strongly demonstrates that the Saudi Arabia-
led coalition violated IHL principles, including those relating to distinction, proportionality, 10 and precautions in
attack.11

11. The Panel will continue to welcome a clarification from the Saudi Arabia -led coalition.

__________________
7
Press statement with Panel. Minor spelling mistakes were corrected. See also Saudi Arabia coalition spokesperson ’s
response here, “14 killed at food factory in first Saudi strikes on Yemen in three months ” at
http://www.middleeasteye.net/news/14-dead-saudi-led-strikes-yemen-factory-medics-1702399607.
8
Letter dated 21 November 2016.
9
IHL requires that the civilian population, as well as individual civilians, shall not be th e object of attack. Article 13(2)
of the Protocol Additional to the Geneva Conventions of 12 August 1949, and relat ing to the Protection of Victims of
Non-International Armed Conflicts (Protocol II), 8 June 1977 ( AP II) and ICRC Customary International Humanitarian
Law Study Rule (CIHLR) 1.
10
An attack is disproportionate if it may be expected to cause incidental loss of civilian life, injury to civilians, damage
to civilian objects, or a combination thereof, which would be excessive in relation to the concrete and direct military
advantage anticipated.
11
IHL requires that all feasible precautions must be taken to avoi d, and in any event to minimize, incidental loss of
civilian life, injury to civilians and damage to civilian objects. Article 13(1) of AP II. CIHLR 15. This obligation is
particularly incumbent on those who plan and decide on the air strikes. See William Boothby, “The Law of Targeting”,
OUP (2012), p. 72.
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Appendix B to Annex 60: Alsonidar Factory complex, Ban al-Hareth District, Sana (13 September 2016)

1. In November 2017, the JIAT provided the following justification in November 2017 for the two air strikes.
It found that:

“… during 4 – 23 September 2016, six ballistic missiles were launched towards Saudi Arabia
from northern Sana’a. The coalition forces carried out Aerial Surveillance and Reconnaissance
Missions on these areas. A convoy consist(ing) of three trucks accompanied by an armed military
vehicle were spotted and tracked until they entered Al Senidar (sic) factory complex located
north of Sana’a city. Coalition forces targeted the warehouses inside the complex on 12
September 2016 and were targeted again on 22 September 2016 because of continued use of the
complex in supporting the war effort, which is considered a legitimate military target.” 12

2. The Panel reexamined and solicited further evidence 13 and continues to solicit further information from
the Saudi Arabia-led coalition that supports JIAT’s conclusions. The JIAT statement is disjointed in that it makes
three separate points without direct attribution:

(a) From 4 – 23 September 2017 six ballistic missiles were fired launched from northern Sana’a to
Saudi Arabia. Note that the only link in this respect made to the factory is that the factory in located in
northern Sana’a;

(b) The JIAT finds that the coalition forces carried out surveillance in these areas (northern Sana’a)
and tracked a convoy of three trucks accompanied by an armed military vehicle until they entered the
factory complex. In the statement, there is no information on what was suspected to be in the trucks. It is
not clear if the possibility was considered that the trucks were carrying production material for the
functioning factory within the complex. 14 It is also not clear as to whether the armed vehicle that is said
to have been accompanying the vehicle also entered the factory, a fact that the factory owners contest, or
indeed if the armed vehicle is another vehicle that was taking the same path – given that the capital Sana’a
is full of these types of armed vehicles. In any event, at the time of the air strikes there were no evidence
of the presence of any trucks or military vehicles in the compound; and

(c) The JIAT’s third point is that the factories were targeted because of “the continued use of the
complex in the war effort”, without any articulation of what that might be.

3. Previously, the Saudi Arabia-led coalition justified the strikes on the basis that the complex “is now
becoming a military manufacturing unit specialized in producing pipes Houthis use to assemble local-made
missiles”. In January 2017, the Panel provided evidence to the Committee as to the reasons that it believed that the
factory was incapable of specializing in producing pipes to assemble missiles. The Panel continues to welcome
verifiable information that demonstrates the military advantage sought to be achieved in these strikes.

4. The Panel declassifies and updates its findings in 2016 to enable an independent assessment to be made
in view of the JIAT’s findings.

__________________
12
Press statement by the JIAT on Coalition forces targeted Alsonidar complex in Sana ’a. Document with Panel.
13
The Panel requested, and received, 18 videos, some taken in the immediate aftermath of the t wo incidents.
14
The factory employees informed the Panel that regular deliveries of raw materials are made to the factory. The
provided the Panel with information, including invoices, supplier information, and shipping details of raw and auxiliary
material transportation that was ordered and that entered the factory in September 2016.
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I. Background
5. On 13 September 2016, at around 12:45 hours, military aircraft dropped four items of explosive
ordnance on the Alsonidar factory complex in the Ban al-Hareth District of Sana’a. 15 This complex contains
the Caprari Water Pump factory, the Alsonidar Steel Pipe factory, and the Alsonidar Red Brick factory. The
explosive ordnance impacted on all three factories. 16 There were no civilian casualties. The water pump
factory was salvageable after the first strike, but the other t wo factories were destroyed.

6. At the time of the attack, only the water pump factory was functional. Those producing bricks and
steel pipes were not operational. 17 The Panel found no evidence to suggest that there were military personnel
or equipment in, or in the vicinity of the strike, immediately before, or during the strike. There was a second
strike on 22 September 2016, which is examined in more detail in the case study at appendix C to annex 60.

Figure B.60.1 Figure B.60.2

Alsonidar complex (15 May 2015) prior to Alsonidar complex (3 October 2016) post
attack 18 attack

Figure B.60.3 Figure B.60.4

Steel and Water Pump factories (3 October Red Brick factory (3 October 2016) post
2016) post attack attack

__________________
15
15°27'05.09"N 44°13'36.9"E.
16
Sources informed that a fourth factory, the Alsonidar Galvanizing Plant, which was being installed inside the pipe
factory, was also affected.
17
The Brick Factory has been non-operational for approximately the last 20 years and the Steel Factory, since 2014.
18
Source: Google Earth, as are all other aerial images in this appendix.
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II. Technical analysis of physical evidence

7. Panel finds that:

(a) Technical analysis of imagery of fragmentation recovered from the explosion indicates
that one explosive device was fitted with a Paveway IV laser guidance unit for a high Mark 82
explosive (HE) aircraft bomb (figures B.60.5 and B.60.6).

Figure B.60.5 Figure B.60.6

Component from a Paveway laser guidance Paveway IV laser guidance fin 20
system fin 19

(b) At least one of the bombs used to destroy part of the Alsonidar factory complex was a
Mark 82 HE aircraft bomb fitted with a Paveway IV GPS/INS and laser guidance unit;

(c) The crater at figure 2.X.7 is highly indicative of that cause by the detonation of a
significant quantity of high explosives on impacting with a concrete floor; and

(d) The only party to the conflict with the known capability to deliver the Mark 82 HE aircraft
bomb with the Paveway IV GPS/INS is the Saudi Arabia led coalition.

Figure 2.X.7
Crater from explosion of A/C bomb

__________________
Images in this annex were provided by those working in the factory.
19

The Commercial and Government Equipment (CAGE) Code displayed on the part means that it was manufactured by
20

EDO MBM Technology Limited, UK. The parent company is the Harris Corporation, https://www.harris.com.
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III. Response of the Saudi Arabia led coalition

8. The Saudi Arabia led coalition stated in the media that it targeted the Alsonidar factory complex
because it:

"is now becoming a military manufacturing unit specialized in producing pipes Houthis use to
assemble local-made missiles…This strike was necessary to protect Saudi border cities
and eliminate the use of such missiles in Houthis attacks against the Yemeni national army and
Yemeni citizens…The coalition takes its responsibilities under international humanitarian law
seriously, and is committed to the protection of civilians in Yemen". 21

9. The Panel has not yet received a response to a request for information made to the Saudi Arabia -
led coalition. 22

10. In January 2017, the Panel provided evidence to the Committee as to the reasons that it believed
that the factory was incapable of specializing in producing pipes to assemble missiles.

IV. Panel findings on Saudi Arabia-led coalition’s justification relating to the air
strikes
A. Technical observations

11. The Saudi Arabia-led coalition argues that it targeted the Alsonidar complex because it "is now
becoming… specialized in producing pipes Houthis use to assemble local-made missiles”. 23 The Panel,
based on available information, 24 finds this rationale unconvincing as:

(a) The Caprari Water Pump factory had machine tools installed to make relatively short
lengths of 3” and 4” flanged pipes. Such pipes would require considerable reverse engineering to
remove the flanges to make plain hollow pipes suitable for main missile bodies. The Panel finds
that they would be unsuitable for use as main missile bodies due to the piping being too short and
the degree of reverse engineering required to remove the flanges;

(b) The Alsonidar Steel Pipe factory was still in the development and commissioning phase
and had only produced test samples of 50mm and 75mm diameter steel pipes with a wall thickness
of 2.9mm. The Italian contractors left before the factory could become operational, and thus mass
production would not be possible. The factory has been effectively closed since late 2014;

(c) The type of steel pipes the factory was designed to produce would not be ideal for use as
the main missile bodies 25 of a free flight rocket (FFR), although it would be theoretically possible.
The wall thickness would make them heavy for a missile main body (at 1.74 and 2.45 kg/m 2 ),
requiring a significant amount of propellant to just launch the missiles, let alone give them any
credible range;

(d) The factory does not have the machine tools necessary to manufacture the fins that FFR
require for stability in flight, although these could be manufactured in a light engineering facility
elsewhere and then taken to an assembly and filling facility;

__________________
21
http://www.reuters.com/article/us-yemen-security-idUSKCN11J27V.
22
Letter dated 21 November 2016.
23
http://www.reuters.com/article/us-yemen-security-idUSKCN11J27V.
24
The Panel had access to video and imagery of the steel pipe factory taken prior to and after the airstrikes, installation
manuals, investigators who visited the site after the incident, and oth er documentation, including letters from the
Caprari Company dated 7 October 2016, Addar Fer, Italy dated 7 October 2016 and the Yemen Chamber of Commerce
dated 14 September 2016.
25
A main missile body being effectively a long, very thin pipe made of an a ppropriate material such as steel or
composite materials.
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(e) The factory does not have the machine tools necessary to manufacture the specialist
nozzles that FFR rockets require to direct the propellant g ases to produce thrust, although these
could be manufactured in a light engineering facility elsewhere and then taken to an assembly and
filling facility;

(f) The Panel has seen no evidence of any explosive manufacturing capability in Yemen to
manufacture the double-based tubular propellant normally used in FFR. A single based propellant,
such as black powder, could be used to produce a very crude FFR system similar to a large
firework;

(g) Improvised FFR would still require fuzes to initiate them on impac t. Use of fuzes from
the artillery or mortar ammunition currently known to be available to Houthi or Saleh forces would
not work as: 1) the calibres of the ammunition are different from the pipes produced in the factory;
2) the forces induced by the firing of artillery or mortar ammunition are different to those induced
by a FFR, meaning that many fuze types would not arm; and 3) there would be a degradation in
operational capability in taking fuzes from more effective purpose designed ammunition to use on
much less effective improvised weapons;

(h) The only evidence seen by the Panel of the use of improvised FFR by the Houthi showed
missile main bodies of different diameters to the piping manufactured in these factories;

(i) Saudi Arabia led coalition has not produced any evidence of the use of improvised FFR
to the Panel;

(j) The Houthi or Saleh forces probably still have access to sufficient quantities of 107mm
Type 63 and 122mm BM-21 GRAD FFR from the old Yemen Army stockpiles for their current
operational needs; and

(k) If the Houthi or Saleh forces were producing improvised FFR they would need an
assembly and filling facility. Such a facility would be the more natural target as it would contain
all of the equipment and materials 26 necessary for the manufacture of improvised FFR.

12. The Panel finds that, even if the factory had been at the production stage, whilst the pipes
manufactured at the Alsonidar Steel Pipe factory could theoretically be used as a crude main missile body
for an improvised FFR, consideration of all the other factors make such a use extremely unlikely.

B. Legal observations

13. There is insufficient evidence to support the Saudi Arabia -led coalition’s justification that the
factory complex was a military objective because it “is now becoming a military manufacturing unit”:

(a) A military objective is limited to those objects which by their nature, location, purpose
or use make an effective contribution to military action and whose partial or total destruc tion,
capture or neutralization, in the circumstances ruling at the time, offers a definite military
advantage. 27 The “purpose” in these criteria relates to a future use, while “use”, to its current
functions. 28 The Saudi Arabia-led coalition’s justification appears to be purpose-based;

(b) The common view is that in using the purpose-based criteria there must be a certain

__________________
26
Such materials being: 1) main missile bodies; 2) nozzles; 3) fins; 4) propellant; 5) high explosive for the warhead;
and 6) fuzes.
27
CIHLR 8.
28
Commentary to Article 52 of Protocol Additional to the Geneva Conventions of 12 August 1949 and relating to the
Protection of Victims of International Armed Conflicts (Protocol 1) of 08 June 1977 at https://ihl-
databases.icrc.org/applic/ihl/ihl.nsf/1a13044f3bbb5b8ec12563fb0066f226/5f27276ce1bbb79dc12563cd00434969 .
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reasonable probability the object may be used for a military purpose 29 and an attack should not be
based on mere speculation. 30 It is not possible to base an attack of an otherwise entirely civilian
object merely “on the intention to deny its potential use to an adversely.” 31 Yet, as demonstrated
in the technical analysis above, it is extremely unlikely that the factory, which was not function al,
could have been converted into a “military unit” producing the type of weapons that the Saudi
Arabia-led coalition alleges; and

(c) The Panel finds it difficult to accept the Saudi Arabia -led coalition’s justification on the
basis on which this factory complex became a military objective. 32

V. Panel conclusions in 2016 on violations of IHL

14. The Panel finds that the use of precision guided weapons and repeated strikes, both o n 13 and
22 September 2016, suggests that the factory complex was the inten ded target of these air strikes. This is
further supported by the statement of the Saudi Arabia-led coalition.

15. There is insufficient evidence to demonstrate that the factory complex was a legitimate military
objective, as elaborated above.

16. Thus, the Panel is unconvinced that the Saudi Arabia-led coalition complied with IHL principles
relating to distinction. 33 It is also not convinced that it respected principles relating to distinction when it
targeted the factory complex as a single military unit - there is no demonstrable evidence to suggest the
Water Pump and Red Brick factories could manufacture the pipes specified. 34

17. The Panel further finds that any reasonable intelligence review undertaken by the Saudi Arabia led
coalition, prior to the air strike, should have taken into consideration that: 1) two of the three factories
were not functional at the time of the air strike; 2) that two of these factories lacked the technical capacity
to manufacture the specific pipes; 3) that the only factory with the technical capacity, the Alsonidar steel
factory, was not functional since 2014; and 4) even if it were to become functional, it would have been
highly unlikely to produce the type of pipes specified (see technical analysis). 35

18. Even if the steel factory had become a legitimate military objective for reasons unknown to, or
shared with, the Panel, the Panel is unconvinced that the Saudi Arabia -led coalition complied with the
relevant IHL principles relating to proportionality. Two of the factories that were also subjected to air
strikes had no technical capacity to produce or contribute to the production of the types of weapons
specified.

19. The Panel finds that the Saudi Arabia-led coalition took some measures to minimize civilian
casualties by undertaking the air strike in early morning hours when the water pumps factory was not
operational. There were no reported civilian casualties.

__________________
29
Report on the Expert Meeting “Targeting Military Objectives”, University Centre for International Humanitarian Law,
Geneva (2005) p. 7 - 8.
30
Yoram Dinstein, “The Conduct of Hostilities under the Law of International Armed Conflict ” (2010), Cambridge
University Press, p. 100.
31
William Boothby’ “Law of Targeting”, (2012), Oxford University Press, pp. 103-105.
32
The Panel reiterates that in situations where more than one inference may be drawn from military intelligence,
purpose should be “predicated on intentions known to guide the adversary, and not those figured hypothetically in
contingency plans based on a worst case scenario.” Yoram Dinstein, “The Conduct of Hostilities under the Law of
International Armed Conflict”, p. 100.
33
CIHLR 7. The Panel reiterates that while the pipes that the Alsonidar Steel Pipe factory is designed to produce, could
theoretically be used as main missile bodies, this is highly unlikely considering the technical and tactical factors set out
above. The Alsonidar Steel Pipe factory has not been operational since 2014.
34
The red brick factory was not operational since 1995.
35
IHL requires that in case of doubt whether a civilian object is a military objective, a careful assessment has to be
made as to whether there are sufficient indications to warrant an air strike. CIHLR 10.
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Appendix C to Annex 60: Alsonidar Factory complex, Ban al-Hareth District, Sana (22 September 2016)

I. Background

1. On 22 September 2016, at around 01:00 hours, a military aircraft dropped explosive ordnance on
the Alsonidar factory complex in Ban al-Hareth District, Sana. 36 The air strikes completely destroyed the
Caprari Water Pump factory, the Alsonidar Steel Pipe factory, and the Alsonidar Red Brick factory. 37 There
were no civilian injuries or deaths. Air strikes first targeted the complex on 13 September 2016.

2. At the time of the attack, none of the factories were functional partly due to the first air strike.

Figure C.60.1 Figure C.60.2

Alsonidar complex (15 May 2015) prior to Alsonidar complex (3 October 2016) post
attack 38 attack

Figure C.60.3 Figure C.60.4

Steel and Water Pumps Factories (3 October Red Brick factory (3 October 2016) post
2016) post attack attack

__________________
36
15°27'05.09"N 44°13'36.9"E.
37
Sources informed the Panel that a fourth factory - Alsonidar Galvanizing Plant, which was being installed inside the
pipe factory, was also affected.
38
Source: Google Earth, as are all other aerial images in this appendix.
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II. Technical analysis of physical evidence

4. The Panel finds that:

(a) Technical analysis of imagery of fragmentation recovered from the explosion indicates
that one explosive device was certainly fitted with a Paveway IV laser guidance unit for a high
Mark 82 explosive (HE) aircraft bomb (figures C.60.5 and C.60.6);

Figure C.60.5 Figure C.60.6

Component from a Paveway laser guidance system Paveway IV laser guidance fin 39
wing

(b) At least one of the bombs used to destroy the Alsonidar factory complex was a Mark
82 HE aircraft bomb fitted with a Paveway IV GPS/INS and laser guidance unit;

(c) The entry points (holes) into the factories 40 were initially caused by the kinetic energy
from aircraft bombs, which have hardened weapons grade steel cases. The aircraft bombs easily
penetrated the thin-skinned roofs before detonating on the concrete floor of the factories; and

(d) The only party to the conflict with the known capability to deliver the Mark 82 HE aircraft
bomb with the Paveway IV GPS/INS is the Saudi Arabia -led coalition.

III. Response of the Saudi Arabia-led coalition

5. The Saudi Arabia-led coalition made no public statements on the second set of airstrikes. It made
a statement on 19 September 2016 after the first air strikes on the factory claiming responsibility for the
strikes (see Annex 1). The JIAT also referred to this air strike in its statement above mentioned.

6. The Panel has not yet received a response to a request for information made to the Saudi Arabia -
led coalition. 41

IV. Analysis of violations of IHL

7. The Panel finds that the use of precision guided weapons and repeated strikes, both o n 13 and
22 September 2016, suggests that the factory complex was the intended target of these air strikes. This is
further supported by the statement of the Saudi Arabia -led coalition on 19 September 2016 (see appendix
B to annex 60).

__________________
39
The Commercial and Government Equipment (CAGE) Code displa yed on the part means that it was manufactured by
EDO MBM Technology Ltd, UK. The parent company is the Harris Corporation, https://www.harris.com.
40
See imagery at Appendix B.
41
Letter dated 21 November 2016.
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8. There is insufficient evidence to demonstrate that the factory complex had become a legitimate
military objective or that the Saudi Arabia-led coalition complied with IHL principles relating to distinction
for the reasons specified in appendix B to annex 60.

10. The Panel further finds that any intelligence review undertaken by the Saudi Arabia -led coalition,
prior to the air strike, should have taken into consideration that: 1) the facts mentioned in appendix B to
annex 50; and 2) that the only factory that was not destroyed beyond i mmediate repair by the airstrikes
was the water pump factory, which did not have the technical capacity to produce the types of pipes
specified. It is reasonable to expect that intelligence gathered prior to the strike would have covered these
aspects. 42

11. Even if the steel factory had become a legitimate military objective for reasons unknown to the
Panel, the Panel is unconvinced that the Saudi Arabia-led coalition complied with the relevant IHL
principles relating to proportionality. It was the water p ump factory that was destroyed beyond immediate
repair during this second strike.

15. The Panel finds that the Saudi Arabia-led coalition took some measures to minimize civilian
casualties by undertaking the air strike in early morning hours when the water pumps factory was not
operational. There were no reported civilian casualties.

__________________
IHL requires that in case of doubt whether a civilian object is a military objective, a careful assessment has to be
42

made as to whether there are sufficient indications to warrant an air strike. CIHLR 10.
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Appendix D to Annex 60: Residential complex, Mafraq Jiblah, Ibb (24 September 2016)

1. The JIAT concluded that the Saudi Arabia-led coalition did not target the residential complex on
24 September 2016.43

2. The Panel finds that technical analysis of evidence demonstrates beyond a reasonable doubt that the
residential complex was targeted using a Mark 82 high explosive aircraft bomb fitted with a Paveway laser guidance
system. The only party to the conflict with the known capability to deliver precision guided HE aircraft bombs is
the Saudi Arabia-led coalition.

I. Background

3. At approximately 22:00 hours on 24 September 2016, explosive ordnance dropped from a military aircraft
detonated on the top floor of a three-story residential apartment complex in the Mafrak Giblah area, Ibb. 44 The
residents of the complex consisted of nine families.45 The explosion killed nine occupants, which included seven
women and children, and injured, at least, seven others, mostly women and children. 46 The complex was located
within a heavily congested residential area.47 Thus, the air strike partially destroyed this complex and seriously
damaged several adjacent residential buildings. 48 It also destroyed several civilian vehicles.49

4. At the time of the air strikes, there was an armed “locality defence team” composed of civilians in the
area.50 This team usually assembles following air strikes to prevent opportunistic looting and vandalism. 51 Some
witnesses stated that the intended target of the air strikes may have been a civilian technical training centre located
46m from the residential complex.52

__________________
43
Press release with Panel.
44
13°56'42.47"N, 44°10'34.59"E
45
The heads of households of the nine families consisted of 1 teacher, 1 veterinarian, 1 doctor, 1 medical assistant, 1
manager of the building, 1 widow, 1 administrative officer, 1 nurse and 1 woman whose husband was abroad.
46
The Panel found it difficult to verify the number of injured persons as: 1) families in the building had scattered
following the air strikes; and 2) it was not possible to obtain comprehensive numbers of those injured in other buildings.
Death certificates with Panel.
47
Imagery available with Panel.
48
Ibid.
49
Ibid.
50
Civilians are protected from direct attack unless and for such time as they take a direct part in hostilities. Article 13 of
AP I.
51
There were reports of some air strikes in the area preceding the attack on the Ibb house.
52
Some stated that they felt that the training centre was a target because they knew that the Saudi Arabia led coalition
targeted these institutions. Others stated that they felt it would be targeted because it was guarded by armed men. A
majority denied that the institute was used in any way to contribute to military action. The website of the technical
institute is http://t.oasyemen.net/portal/index.php.
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Figure D.60.1
Relative locations of apartment complex and training centre 53

II. Technical analysis of physical evidence

5. Technical analysis of imagery of fragmentation recovered from the explosion at the civilian house
finds that:

(a) The explosive device was almost certainly fitted with a Paveway laser guidance unit. Such
units are usually designed to be paired with Mark 82 high explosive aircraft bombs (figures D.60.2
and D.60.3);

__________________
53
Google Earth. (12 July 2016).
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Figure D.60.2 Figure D.60.3

Post-explosion guidance wing from a Paveway Post-explosion adapter flange from a Paveway
laser guidance system laser guidance system

(b) The damage to civilian apartment complex was highly indicative of that caused by the
detonation of a large quantity of high explosive. There was clear evidence of the destruction of
structural components of the building that equate to the damage to be expected from the shock and
blast waves of an explosion (figures D.60.4 and D.60.5);

Figure D.60.4 Figure D.60.5

Civilian apartment complex post blast Civilian apartment complex post blast

(c) The civilian apartment complex was almost certainly destroyed by a Mark 82 high
explosive aircraft bomb fitted with a Paveway laser guidance system; and

(d) The only military entity operating the type of aircraft in the area that has the capability to deliver
high explosive ordnance of this type is the Saudi Arabia-led coalition.

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III. Response of the Saudi Arabia led coalition and findings of the JIAT

6. The Panel has not yet received a response to a request for information made to the Saudi Arabia
led coalition.54

7. The JIAT stated in November 2017 that the Saudi Arabia-led coalition did not target this residential
complex. It stated:

“on 24 September 2016 Coalition forces targeted a building at bin Laden resort in Ibb governorate
which was used as a military headquarters by the Armed Houthi Militia, which represents a legitimate
military target, the target is located at a distance of 1070 meters from the claimed residential building.
JIAT concludes that the Coalition did not target the residential building” (emphasis added).55

IV. Analysis of violations of IHL56

8. The Panel finds that the Saudi Arabia-led coalition was responsible for this air strike (paragraph 4) and
that the use of precision-guided weapons demonstrates that the residential complex was the intended target of these
air strikes. In 2016, the Panel found that there was no evidence to support a finding that the complex had become
a legitimate military objective.

9. The Panel concluded that the residential complex was a prima facie civilian object, immune from direct
attack and that the occupants had not lost their civilian protection.57 Therefore, unless the Saudi Arabia-led coalition
provides information to the contrary, evidence strongly demonstrates that the Saudi Arabia-led coalition violated
principles of IHL, including those relating to distinction, proportionality and precautions in attack.

10. The Panel will continue to welcome a clarification from the Saudi Arabia -led coalition.

Appendix E to Annex 60: Civilian house, T’baisha’, Jebel Habshi, Ta’izz (25 March 2016)

I. Background to events

1. At approximately 07:00 hours on 25 March 2016, explosive ordnance dropped from a military aircraft
detonated on a civilian two story house in the village of T’baisha’, Ta’izz. 58 The blast and fragmentation from the
explosion killed all ten occupants of the house, which included three women and five children from the same
family. The closest military location was a Houthi base located on a mountain, which was a significant distance
from the village. There was no reported presence of armed fighters near the house.

__________________
54
Letter dated 21 November 2016.
55
Press statement by the JIAT, Coalition forces claim to bomb residential building in Ibb governorate (document with
Panel).
56
In the absence of a response from the Saudi Arabia led coalition, the Panel analyzed the applicable IHL law in
relation to this incident on the basis of its own independent investigations including: 1) witness testimonies; 2)
technical analysis of weapon fragments; 3) satellite imagery; 4) examination of investigation reports of international
and non-international organizations; 5) examination of medical reports; and 6) open source imagery and documentation.
For open sources see “Raids kill nine in central Yemen - medical official, residents” http://www.reuters.com/article/us-
yemen-security-idUSKCN11V04U, “Arab coalition airstrikes kill 10 civilians in Yemen's Ibb city”
http://news.xinhuanet.com/english/2016-09/25/c_135712446.htm, “Gulf of Aden Security Review - September 26,
2016” http://www.criticalthreats.org/gulf-aden-security-review/gulf-aden-security-review-september-26-2016, “Yemen
– Conflict (Health Cluster, media) (ECHO Daily Flash of 26 September 2016)”,
http://reliefweb.int/report/yemen/yemen-conflict-health-cluster-media-echo-daily-flash-26-september-2016.
57
IHL requires that the civilian population, as well as individual civilia ns, shall not be the object of attack. Article 13(2)
of AP II. and CIHLR 1.
58
13°33’56.2”N, 43°54’03.4”E.
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Figure E.60.1 Figure E.60.2

Remote location of house 59 Post blast damage

II. Technical analysis of physical evidence

4. The Panel finds that post blast analysis of imagery of the explosion is highly indicative of damage
consistent with the detonation of a high explosive aircraft bomb (figure E.60.2). This is collaborated by eye-witness
statements that report the presence of a military aircraft preceding the explosion and a document issued by the
ministry of justice stating the same;60

5. The steel strengthening bars within the concrete have been sheared, due to the power of the shock wave
close to an explosion, whereas further away from the point of explosion the steel strengthening bars have been
deformed due to the power of the blast wave. Such damage mechanisms are highly indicative of that typically
caused by the detonation of high explosives; a gas explosion, for example, would not have the power top shear
steel strengthening bars; and

6. The only military entity operating the type of aircraft in the area that has the capability to deliver high
explosive ordnance of this type is the Saudi-led coalition.

7. The house was highly likely to be the intended target of the air strike. The Panel is not convinced that the
Saudi Arabia led coalition directed its air strike against a legitimate military target. Yet, even if it had, the Panel is
not convinced that the forces respected IHL principles relating to proportionality and precautions in attack.

__________________
59
Google Earth.
60
Document with Panel.
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Appendix F to Annex 60: Radfan Mineral Water-Bottling Factory, al-Mahala, Lahj (25 May 2016)

I. Background to events

1. At around 04:00 hours, on 25 May 2016 military aircraft dropped multiple items of explosive ordnance
on a water bottling plant in al-Mahala, Lahj.61 There were no civilian fatalities reported.62 The factory employed
over 300 people at the time of the air strikes. 63

2. The Panel found no evidence to suggest that there were fighters or their equipment in or in the vicinity of
the factory preceding or at the time of the air strikes. The closest military installation is a base under the control of
the Hadi-led government of Yemen, which is located 15.3 km northwest of the factory. In the two weeks preceding
the air strike, soldiers from this base had twice entered the water bottling plant. 64

Figure F.60.1 Figure 6.X.2

Radfan Factory (27 October 2013) prior to Radfan Factory (8 June 2016) post attack 66
attack 65

__________________
61
13°05'09.07"N, 44°51'54.83"E.
62
At the time of the attacks, there were approximately ten civilians guarding the factory.
63
Owner of the factory. See also http://reliefweb.int/report/yemen/bombing-businesses-saudi-coalition-airstrikes-
yemen-s-civilian-economic-structures-enar.
64
The Yemen armed forces conducted search operations and forcefully removed and relocated several factory on the
basis that they were “Northerners”. See S/2017/81 para 153 for reference to this forced removal.
65
Source: Google Earth.
66
Ibid.
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Figure F.60.3 Figure 6.X.4

Al Anad Air Force Base 67 Air Force Base relational to Factory

II. Technical analysis of physical evidence

3. Technical analysis of imagery of fragmentation recovered from the explosions at the factory (figures
F.60.5 and F.60.6) demonstrates that the explosive device was almost certainly fitted with a Paveway 68 laser
guidance unit.69 Such units are designed to be paired with Mark 82 high explosive (HE) aircraft bombs;

Figure F.60.5 Figure F.60.6

Guidance fin and component Paveway laser guidance fin
from a Paveway laser guidance
system

4. The water bottling plant was almost certainly destroyed by a Mark 82 HE aircraft bomb fitted with a
Paveway laser guidance system, resulting in extensive damage; and

5. The only party to the conflict with the known capability to deliver the Mark 82 HE aircraft bomb with the
GBU-12 PAVEWAY II guidance unit is the Saudi Arabia-led coalition.

__________________
67
13°10'53.13" N 44°45'46.42" E.
68
It was not possible to determine from just the fin whether it was a GBU -12 Paveway II (US manufactured) or
Paveway IV (UK manufactured) laser guidance unit.
69
The Enhanced GBU-12 (EGBU-12) has a dual mode laser guided and GPS inertial navigation system. The Panel
cannot determine if this was fitted to this bomb from the available evidence.
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6. The Panel finds that the factory that was the intended target of the air strikes. The Panel is not convinced
that IHL principles relating to distinction and proportionality were met. The Yemen Armed Forces had entered and
searched the factory on two occasions within the two weeks that preceded the air strikes, and had not, according to
witnesses, made any claim or confiscated any material or arrested any person that could have demonstrated that the
factory or its workers were making an effective contribution to military action. 70

7. The Panel finds that the Saudi Arabia-led coalition took certain precautions measures to successfully avoid
civilian fatalities, in that it conducted its air strikes at night when the factory was not operational. It is also relevant
that the first air strikes did not impact on the sleeping quarters of the workers, thus enabling them to seek protection
from the effects of the strikes.

__________________
70
Panel interviews with four persons who interacted with the Yemen Armed Forces.
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CONFIDENTIAL ANNEX NOT FOR PUBLIC DISSEMINATION

Annex 61: Case studies and other information on UAE detentions

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Annex 62: IHL and HR violations relating to detentions by UAE military forces

I. Terminology
1. In this annex, the terms “arrest”, “detention”, and “detainee” are used to describe the act of depriving an
individual of his liberty, the consequential deprivation of liberty, and those subjected to the deprivation of liberty,
respectively, without prejudice to the lawfulness of those acts and irrespective of whether detainees are subjected
to internment 1 or criminal detention. 2 The Panel received information from former and current detainees, but
because of veritable threats against detainees and their families, the Panel will refrain from providing more
information on their current situation. The Panel defines the terms arbitrary arrest and detention, 3 torture,4 enforced
disappearance,5 and sexual violence6 in accordance with international law and jurisprudence.

2. In this annex, unless otherwise stated, the term Yemeni forces refers only to the Security Belt in Aden,
Hadrami Elite Force, and the Shabwani Elite Force.

II. Legal justification for UAE involvement

3. The primary legal justification for the UAE’s involvement in the armed conflict in Yemen is based on the
invitation issued by the legitimate Government of Yemen. 7 The UAE’s obligations are analyzed herein under both
IHL and IHRL regimes, as both are binding on the UAE in respect of its obligations in Yemen. 8 Under IHL and/or
IHRL and norms, the following are prohibited at all times: arbitrary arrest and deprivation of liberty of individuals,
non-adherence to certain due process rights, violence to life and person, torture and ill treatment, sexual violence,
outrages upon personal dignity, and threats to commit the above acts, and enforced disappearances. 9 The following
paragraphs outline the Panel’s main findings and conclusions, based on its independent investigations.

__________________
1
The term ‘internment’ refers to detention for security reasons in situations of armed conflict, i.e. the non -criminal
detention of a person based on the serious threat that his or her activity poses to the security of the detaining authority
in relation to an armed conflict. See Commentary to Common Article 3.
2
Detention related to a criminal process. The Panel is only investigating those detentions linked to the conflict in
Yemen and where IHL and/or IHRL violations can be established.
3
The Panel considers an arrest, and consequent detention to be arbitrary when, inter alia; 1) it is clearly impossible to
invoke any legal basis justifying the deprivation of liberty; and 2) when the total or partial non -observance of the
international norms relating to the right to a fair trial is of such gravity as to give the deprivation of liberty an arbitrary
character. See Working Group on Arbitrary Detention, Report, A/HRC/16/47 of 19 January 2011, paragraph 8.
4
Article 1 of the Convention against Torture and Other Cruel Inhuman or Degrading Treatment or Punishment (CAT).
5
The Panel considers that enforced disappearances occur when; 1) persons are arrested, detained or abducted against
their will or otherwise deprived of their liberty; 2) followed by a refusal to disclose the fate or whereabouts of the
persons concerned; or 3) a refusal to acknowledge the deprivation of their liberty; and 4) which places such persons
outside the protection of the law. See the Declaration on the Protection of All Persons from Enforced Disappearance
(A/Res/47/133).
6
Sexual violence includes any act of a sexual nature, which is committed on a person under circumstances which are
coercive. See International Criminal Tribunal for Rwanda, Prosecutor v. Jean-Paul Akayesu, Case No. ICTR-96-4,
Judgment (Trial Chamber), 2 September 1998, para. 688, (3).
7
S/2015/217.
8
The UAE is a party to the Geneva Conventions of 1949 (10 May 1972) and the Protocol Additional to the Geneva
Conventions of 12 August 1949, and relating to the Protection of Victims of Non -International Armed Conflicts
(Protocol II), 8 June 1977 (Additional Protocol II) (09 March 1983). The UAE has not ratified the International
Covenant on Civil and Political Rights (ICCPR), but is a party to, inter alia, CAT (19 July 2012) and the Convention on
the Rights of the Child (CRC) (03 January 1997). The UAE is bound by provisions of the ICCPR, in so far as it reflects
existing customary international law, and the Universal Declaration of Human Rights. The UAE military forces are
bound by the State’s human rights obligations in times of armed conflict and “in respect of acts done by a State in the
exercise of its jurisdiction outside its own territory”. See Legal Consequences of the Construction of a Wall in the
Occupied Palestinian Territory, Advisory Opinion, I.C.J. Reports 2004, pp. 178-181, paras. 106 – 113 and Case
Concerning Armed Activities on the Territory of the Congo (Democratic Republic of Congo v. Uganda), Judgment of
19 December 2005, para. 216.
9
The relevant provisions can be found, inter alia, in Geneva Conventions Common Article 3 and Additional Protocol II
articles 4 and 5 and the CAT. See also ICRC Customary IHL rules, inter alia, rules 90, 93, 98, 99, 100, 105, 117, 118,
123, 125 and 126 for an elaboration of relevant IHL principles. See also Chatham House and ICRC, Expert meeting on
procedural safeguards for security detention in non-international armed conflict, December 2009.
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III. UAE detention sites in Yemen

4. The UAE denies maintaining detention facilities in Yemen. 10 It informed the Panel that all
detainees are kept in “facilities and prisons under the authority of the legitimate Government”.11 In 2016
and 2017, the Panel investigated violations relating to eighteen detainees held in detention facilities
administered and supervised exclusively by the UAE (see table 62.1).

Table 62.1
Summary of UAE detentions investigated (2016 - 2017)

Bureiqa UAE Shabwah

Serial Date base al-Rayyan UAE base Belhaf port

1 Number of detentions investigated 0 6 0

2016 12
2 Number of detentions investigated 2017 7 3 1

5. The persons documented in the above sites fell within the exclusive jurisdiction of the UAE
military forces, while at the detention site. 13 Yemeni official sources informed the Panel that the
Government of Yemen does not have any authority over them once they are under UAE custody .14

6. The Panel identified the location of the detention facility inside the Bureiqa UAE base, based on
drawings and descriptions provided by six detainees (annex 61). Satellite imagery shows, what is now
being identified as, solitary cells being built in 12 April 2016. The Bureiqa base was under the exclusive
control of UAE forces in April 2016 and thus, they alone were responsible for the construction of this site.

__________________
10
Previously UAE held that “… the UAE, as a part of the Arab Coalition (sic), does not administer or supervise any
prisons in Yemen… This is within the jurisdiction of the Yemeni legitimate authorities. The Coali tion forces provide
training to Yemeni cadres in accordance with the best legal practices... ”. https://www.thenational.ae/world/foreign-
ministry-denies-existence-of-uae-run-secret-prisons-in-yemen-1.92640, 23 June 2017.
11
UAE letter to Panel 2017/578 of 8 November 2017.
12
Paras. 133 and 134, S/2016/81.
13
Three detainees witnessed/ or was informed by UAE officials of a “western presence” in Bureiqa. United States
troops are reported to be present in al-Rayyan detention site. See
https://www.apnews.com/4925f7f0fa654853bd6f2f57174179fe. The Panel requested confirmation from the United
States on presence of its forces in al-Rayyan; their involvement in UAE-related detentions; and knowledge of detention-
related abuses. The United States informed the Panel that it was “unable to share additional information with the Panel
at this time.” Email dated 13 December 2017.
14
In addition to confidential Panel sources, the following documents also refer to UAE detentions; 1) letter dated 31/07/
2017 sent to HRW by the 2nd Military Regional Command, which states that “Some of the assertions (on abuses
associated with detentions) are biased, intended to slander Coalition forces and especially the United Arab Emirates.
Everyone knows the honorable role played by this country… as well as the ethical treatment of prisoners where much is
done to facilitate communication with their families ”, (emphasis added); 2) a previous iteration of the above letter,
signed by Brigadier General Farag Salemeen al-Bahsani, Commander of the 2 nd Military Regional Command. This letter
states that allegations on abuses in detention were made to tarnish the reputation of the UAE, but that al -Bahsani
“confirm(s) that they (UAE) have dealt with detainees in a civil and humane manner ” including by facilitating
communications between the detainees and their families and by allowing one detainee to visit his mother ’s funeral; and
3) Report of group of human rights activists in Hadramawt who visited “secret detention facilities” in July 2017
concluded that “They (sic) are around 175 detained at al-Rayyan that are being held for terrorism charges. The area that
they are being held in (al-Rayyan) it is an old location that is not in the possession of the government (unofficial Panel
translation).” Open sources include https://www.hrw.org/news/2017/06/22/yemen-uae-backs-abusive-local-forces
(HRW), https://www.apnews.com/4925f7f0fa654853bd6f2f57174179fe (AP), and http://www.echr.org.uk/news/details-
secret-prisons-yemen-under-supervision-uae (SAM Organization for Rights and Liberties).
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Imagery on 7 November 2017 shows a further expansion of the base (annex 61). The location of the UAE
detention facility in al-Rayyan was identified by AP.15

IV. Joint arrest activities between UAE and Yemeni forces

7. The UAE informed the Panel that all arrests are undertaken exclusively by Yemen security forces, and
that the UAE does not arrest any civilians.16 The Panel has documented three incidents where UAE and Yemeni
forces conducted joint arrest operations. In two operations in Shabwah and Mukalla, UAE air assets were deployed
during the arrest operation and in the other, in Mukalla, UAE forces acted as observers. These detainees were then
directly transferred to UAE custody.

8. The Panel finds that while the UAE has engaged in joint arrest operations with Yemeni forces that resulted
in the UAE taking individuals into its custody, in most cases investigated by the Panel, the UAE military forces
received detainees whom the Yemeni Forces had arrested.

V. Transfer of detainees between UAE and Yemeni forces

9. In the incidents investigated, the Hadrami Elite Forces, the Director of General Security of Aden, the
Security Belt in Aden, and Shabwani Elite Forces transferred detainees, whom they had arrested, to UAE custody
(for individuals responsible for these forces see annex 65. Eye-witnesses informed the Panel that UAE forces also
removed detainees out of Yemeni custody from Bir Ahmed I. Other transfers documented include three detainees
transferred from the UAE site in Bureiqa to Bir Ahmed I. An identified UAE official also transferred detainees
from Bir Ahmed I to Bir Ahmed II on 12 November 2017 (figure 62.2).

__________________
15
https://www.apnews.com/4925f7f0fa654853bd6f2f57174179fe. At 14°40'9.92"N 49°22'28.49"E. The UAE informed
the Panel that “Riyan (sic) Airport is used (by the UAE) in providing the local authorities in Hadramaut (sic) with the
necessary support to control the security situation…in coordination with…the governor”. UAE letter to Panel 2017/578
of 8 November 2017.
16
UAE letter to Panel 2017/578 of 8 November 2017.
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Figure 62.1
Relative locations of Bir Ahmed site I and II and the UAE Bureiqa site 17

10. The lack of transparency for these transfers, combined with official denials of the presence of individual
detainees and/or detention sites at certain locations, create an environment conducive for enforced disappearances.
For example, families said that they were aware of detainees being present in some sites, for example, al-Rayyan
UAE base or Bureiqa UAE base, based on information received from former detainees or Yemeni officials who
were involved in the transfers, but the UAE had not, to date, provided identification information on detainees held
in these detention sites to families. 18 The Panel also met with fourteen families who were informed that their
disappeared relatives were in UAE administered or controlled prisons. 19

11. The Panel finds that is no evidence that the UAE and/or Yemeni forces are taking the appropriate
precautions required under international law, when engaging in the transfer of control of detainees into each other’s

__________________
17
Image: Panel of Experts. Bir Ahmed I was described by detainees, while Bir Ahmed II was located using satellite
imagery, based on descriptions provided by detainees and open source images.
18
Interviews with multiple family members who directly engaged with the Saudi Arabia -led coalition forces in Aden
and Mukalla on seeking information on the fate of their loved ones. Initially, these forces were cooperative with
families (for example, in Mukalla, in December 2016, coalition forces requested families to provide detainee lists), but
later, they refused to engage, according to these families.
19
Information provided to the families by other former detainees or security personnel. One detainee was witnessed by
a relative entering the Bureiqa UAE base, his whereabouts are since unknown.
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authority and custody to prevent detention related abuses, including enforced disappearances. 20 For example, the
Panel has identified torture and ill treatment of the same detainees by both the UAE and Yemen forces (see
annex 61).

VI. UAE military forces’ control and influence over Yemeni forces

12. The Governments of Yemen and the UAE state that the Security Belt, Aden, and the Elite Forces are under
the exclusive authority of the Government of Yemen. 21

13. This is denied by official Yemeni sources, who informed the Panel that the Government of Yemen does
not have complete operational control over these forces and their leadership. These forces carry out operations
independently of the Government, and are, sometimes, tasked by the UAE forces themselves. 22 The Panel was also
informed by official Yemeni sources that:

(a) Salaries of the Security Belt, for example, are paid directly by the UAE to the Security Belt
forces, and the salary paid exceeds significantly from what is paid to regular forces operating
under the Government of Yemen (see annex 65);

(b) Government of Yemen does not have information on all names and other details of detainees
arrested by the above Yemeni forces, and handed to UAE custody; and 23

(c) There have been clashes between some of these Yemeni forces, and those under the control
of the legitimate government demonstrating the Government of Yemen ’s inability to exert full
operational control over them. 24

14. The Panel has identified the Elite Forces and Security Belt as proxy forces of the Saudi Arabia-led
coalition.

15. Despite the level of control exercised by the UAE over the Security Belt and Elite Forces, there is no
demonstrable evidence that the UAE has acted to prevent violations by the Yemeni forces. For example, the Panel
investigated a case where a detainee was physically abused by the Security Belt, immediately prior to the transfer
of that detainee to the UAE, and finds it is unlikely that the UAE military forces assuming custody would have
failed to notice the abuse. Given, however, that the UAE military forces then physically abused the same detainee,
the Panel can only conclude that there is collusion between the forces on measures adopted to collect information
from detainees. This pattern of detainee abuse by multiple authorities was also observed with other detainees
transferred to the UAE from the custody of the Director of General Security, Aden (see annex 61).

16. The fact that the UAE military forces themselves engage in violations with impunity (see paragraph 19)
creates an environment conducive to violations. It then enables the Yemeni forces operating with the UAE, also to
engage in the same violations with enhanced impunity. See appendix A for levels of influence exerted by the Saudi
Arabia-led coalition on Yemeni forces.

__________________
20
See paras. 708 and 714 of the Commentary to Common Article 3 on obligations relating to non-refoulement when
detainees are transferred to the custody of one State by another State. There is clearly an information exchange between
the Yemeni forces and the UAE officials interrogating the detainees as demonstrated by the questions asked by
detainees by both entities.
21
Panel meeting with Ministry of Interior, Aden, 2 October 2017. UAE letter to Panel 2017/578 of 8 November 2017.
S/2017/81, para 134. Both the UAE and the Government of Yemen’s official positions are that the UAE provides, inter
alia, training and other logistical support to these forces. http://arabfhr.org/2017/06/27/yemeni-human-rights-minister-
denies-secret-prisons-in-aden-southern-yemen/?lang=en.
22
Yemeni official sources, including those dealing with security.
23
Ibid. Thus far, the Government of Yemen has not responded to any Panel requests for information on UAE detentions.
24
See UAE-backed fighters take Aden airport from Hadi forces, Middle East Eye, May 31, 2017 at
http://www.middleeasteye.net/news/uae-backed-fighters-yemen-take-over-aden-airport-ally-hadi-report-1568338746
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VII. Legal authority for the UAE detentions in Yemen

17. The Panel has asked, but not yet received, from Saudi Arabia, the UAE or Yemen, relevant information
on the relevant legal authority under which the UAE engage in arrests and deprivation of liberty in Yemen. The
invitation to GCC countries intervening in the Yemeni conflict, presented by the Government of Yemen is broad,25
but, in the absence of a response from the Government of Yemen for a clarification, it is not for the Panel to
conclude that this invitation provides the relevant legal authority for UAE to detain individuals, especially given
that the Government consistently fails to acknowledge UAE detentions or detention sites maintained by the UAE. 26

18. Similarly, in the absence of a response by the Government of Yemen on the relevant position in its
domestic law or on the existence of a bilateral/multilateral agreement on the same, the Panel is not able to conclude
that the relevant legal basis can be found in those instruments. 27 The UN Security Council resolutions on Yemen
do not provide the requisite legal authority. There are no standard operating procedures regulating the arrest and
transfer of detainees and their conditions of detention in respect to UAE detentions.

19. Thus, the Panel finds that the legal authority under which the UAE engages in arrests and detentions in
Yemen is unclear, as neither country would provide the relevant clarification. The Panel finds that this is
presumably because neither UAE nor Yemen acknowledges UAE detentions in Yemen, and to provide a
clarification on UAE authority would invariably necessitate an acknowledgement of UAE detentions.

VIII. UAE violations of IHL and HR of detainees

20. Detainees informed the Panel of the following violations at the Bureiqa detention site: 28

(a) Torture, including beatings, electrocution, constrained suspension, imprisonment in a

metal cell (‘the cage’) in the sun and sexual violence (annex 61). 29 UAE soldiers and officials
inflicted these abuses to obtain information or to punish individuals;

(b) Denial of appropriate medical treatment, including for torture and prevailing medical
conditions; 30

(c) Enforced disappearance. The detainees investigated by the Panel were at the Bureiqa
detention site from a few days to over six months. With a few exceptions, families were unaware
of their whereabouts. A significant majority of detainees were not allowed to communicate with
their families;

__________________
25
S/2015/217.
26
One may argue that the transfer of detainees, arrested by individuals and entities said to be under the “de jure control”
of the Government of Yemen, to UAE custody, may constitutes an implicit authorization on the part of the Government
of Yemen for UAE to detain these individuals. It is not for the Panel to infer implicit authority especially given the low -
level of control the Government of Yemen exercises o ver these Forces.
27
It is unclear if Common Article 3 to the Geneva Conventions or AP II alone provides a basis for detention. See ICRC,
“Internment in Armed Conflict: Basic Rules and Challenges, Opinion Paper”, November 2014, p.8. It is recognized that
in a non-international armed conflict additional authority maybe required as a legal basis for foreign forces to detain
individuals. This may include authorizations under a Chapter VII Security Council resolution, domestic legislation, or
an international agreement between the detaining State and host State. See also ICRC, “Strengthening international
humanitarian law: protecting persons deprived of their lib erty: Concluding report”, 32IC/15/19.1, October 2015.
28
In accordance with Panel methodology, all the information in thi s section (and this annex) was provided by, at
minimum, two sources. For this section, the sources were either eye -witnesses or victims.
29
Five detainees witnessed torture and sexual violence being committed against other detainees and, at least, four,
interviewed by the Panel, stated that they were tortured. Medical records verified the occurrence of torture in two cases,
but circumstances of other detainees did not allow for medical verification.
30
Two detainees. Yet, another detainee was provided medical treatment, for torture that occurred immediately before he
entered the Bureiqa base, as the UAE concluded that his arrest and detention was ill conceived and there was no reason
for him to be detained. Yet, the detainee was not released.
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(d) The families of detainees, their legal representatives, or the representatives of

international organizations, including the ICRC, have not had access to detainees; 31 and

(e) While there were regular interrogations of detainees, including the allocation of case
officers for each detainee, detainees had no access an impartial body to challenge their detention.

21. The Panel finds that the UAE military forces have engaged in violations of IHL and IHRL when it engaged
in arbitrary arrest and detention, 32 torture, ill treatment, enforced disappearances and threats to commit the above
acts, and other violations of fundamental guarantees of detainees. 33

IX. Acts of intimidation and threats by UAE forces and other groups

22. There is widespread intimidation practiced by the UAE and their local collaborators to maintain secrecy
of these detentions and associated abuses. The Panel considers that the following documented acts of intimidation
are extremely grave in that they deprive families the right to know the fate of their relatives, prevent any
accountability for the violations, and facilitate denials of continued violations:

(a) A detainee was threatened with sexual abuse if he informed anyone of the detention and
consequent abuses suffered at the hands of the UAE;

(b) Another former detainee was warned not to discuss his detention with the UAE, but when he did,
he was immediately rearrested and remains in UAE custody; 34

(c) The Panel observed widespread fear during its discussions with former detainees, families of
detainees, and activists that there will be repercussions on those who speak of the UAE detentions, in
Mukalla and Aden. In both Mukalla and Aden, protestors who demonstrated against these detentions were,
on two occasions, subjected to verbal harassment and physical abuse. 35 They were sufficiently intimidated
to discontinue their protests at the same locations; and

(d) In one case, a letter sent to HRW by the UAE Ministry of Defence, following its findings on
detentions in Mukalla, threatened the “prosecution” of those involved in reporting detention-related
violations.36

23. The Panel finds that UAE forces, the Yemeni Ministry of Defence, and other unidentified groups have
engaged in intimidation and threats against detainees and those representing them.

__________________
31
Source: families and detainees.
32
For example, in one case, an individual was arrested, taken to al-Rayyan and was shown a list and asked to identify a
specific unknown individual in that list as responsible for a recent security incident, and when he refused to do so, he
was detained for several months. In another unrelated case, an individual, whose relative had recently been imprisoned
in al-Rayyan, was requested to come to the base, asked to identify an individual on the list as AQAP, and he identified
the individual despite knowing full well that he was not linked to AQAP. The Panel was informed he identified the
individual to prevent being detained himself.
33
See Article 4 and 5 of AP II and CA 3. ICRC, “Strengthening international humanitarian law: protecting p ersons
deprived of their liberty: Concluding report”, 32IC/15/19.1, October 2015. Jelena Pejic, Internment in armed conflict
and other situations of violence, 87 (835) IRRC, June 2005.
34
Specific details are omitted to protect detainee.
35
Panel meetings with the protestors.
36
Documents with Panel. See footnote 14. Following the release of HRW report on UAE detentions, the lead
researcher’s passport was circulated in the media stating that she was a Qatari affiliate.
http://m.sahafah.net/show2924701.html. Even if this is not attributed to the UAE by the Panel, this demonstrates undue
interference and lack of protection afforded to those reporting on violations.
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X. Government of Yemen’s complicity in abuses

24. The Government of Yemen is instrumental in, and is facilitating, continued violations by UAE military
forces, in Yemen, by:

(a) The continued failure to acknowledge UAE detentions in Yemen, 37 even though forces under its
supposed de jure control continues to engage in and facilitate such detentions and/or conduct joint arrest
operations with the UAE;

(b) The failure to clarify the legal authority under which the UAE military forces, as an international
force, continue to arrest and detain individuals in Yemen;

(c) The failure to assert jurisdiction and to control abuses in detention sites maintained by the UAE;

(d) The non-payment of salaries to its forces, which is essential in establishing its de facto authority
over those forces, and by allowing the Saudi Arabia led-coalition to directly pay salaries or incentives to
some of these forces operating with the UAE; and

(e) The failure to conduct a credible inquiry into its own forces alleged to have committed
violations;38 failure to conduct an inquiry into the UAE’s conduct and curtail its conduct in so far as it
relates to abusive practices; and failure to ensure safeguards when engaging in detainee transfers between
the UAE and forces under its supposed de jure control.

25. The Government of Yemen has, during several meetings with the Panel, sought to distance itself from the
legal responsibility accruing on the Government of Yemen for acts and omissions committed by the Saudi Arabia-
led coalition in Yemen.39 Yet, the Panel finds that:

(a) The Government of Yemen continues to be responsible for any internationally wrongful acts
committed by the Saudi Arabia-led coalition and individual members of the Saudi Arabia-led coalition in
Yemen;

(b) Saudi Arabia-led coalition member States are present and operating in Yemen, at the invitation
of, and with the consent of, the Government of Yemen. The Government has full discretion to revoke or
limit this consent, or to clarify the boundaries of its consent, to further the compliance of these forces with
IHL and IHRL;40 and

(c) The Government of Yemen is responsible for the consequent treatment and wellbeing of all
detainees, especially those who have been transferred to UAE by forces under its de jure control. 41

__________________
37
The Minister of Human Rights stated that “reports…about secret prisons in the south are baseless”.
http://arabfhr.org/2017/06/27/yemeni-human-rights-minister-denies-secret-prisons-in-aden-southern-yemen/?lang=en.
The spokesman of the Aden police “acknowledged that the UAE played a positive and supportive role for many
prisoners who were released by the security services in Aden and Hadramawt, pointing out th at the role of the UAE
“was limited to providing support to the Department of Aden security... ” http://arabfhr.org/2017/06/27/yemeni-human-
rights-minister-denies-secret-prisons-in-aden-southern-yemen/?lang=en.
38
According to the media, the Government of Yemen established a Commission, in June 2017, to “consider the
allegations of violations of human rights in liberated areas and p ropose possible responses to those allegations and
establish a mechanism to address and resolve any future problems in this regard. ” This Commission’s findings are not
yet public. http://arabfhr.org/2017/06/27/yemeni-human-rights-minister-denies-secret-prisons-in-aden-southern-
yemen/?lang=en.
39
Meetings with Yemeni officials.
40
See Common Article 1 of the Geneva Conventions on the Government of Yemen’s obligations. For consent related
matters see Democratic Republic of Congo v Uganda.
41
The Government of Yemen can absolve itself of its responsibility of internationally wrongful acts, if UAE forces in
Yemen are classified as an occupying force (See Democratic Republic of Congo v Uganda. Although the President of
Yemen did allege that the UAE is acting as an occupying force in Yemen, this was not repeated.
http://www.middleeasteye.net/news/exclusive-yemeni-president-says-emiratis-acting-occupiers-1965874493.
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XI. Involvement of other States

26. As far as the Panel is aware, the UAE, in carrying out these operations, is working as a part of the Saudi
Arabia-led coalition.42 Thus, the following member States, especially, have responsibilities under Common Article
1 of the Geneva Conventions, that requires all parties to “ensure respect” for IHL: Bahrain, Djibouti, Jordan,
Kuwait, Malaysia, Morocco, Saudi Arabia, Senegal and Sudan. 43

27. To the extent, that the UAE detentions are being undertaken to gather information on AQAP or ISIS or
other terrorist groups, partners of the UAE should take proactive steps to inquire and ensure that the information
that it receives on the basis of partnership agreements or otherwise, is not obtained by torture, not only because
such information is unreliable, but also because it violates these member States international obligations. 44 These
member States also have a special responsibility under Common Article 1 of the Geneva Conventions to ensure
respect for IHL. The United States and Europol45 work with the UAE on countering terrorism, with the United
States actively engaged with the UAE in Yemen. 46

XII. Conclusions

28. The Panel finds that:

(a) It is unlikely that UAE military forces in Yemen are conducting arrest and detention operations
without the knowledge of the Governments of the UAE and Yemen;

(b) The lack of public acknowledgement of the UAE’s engagement in detention, by both
governments, contribute to violations occurring with impunity by both UAE forces and its Yemeni
collaborators. For the Yemeni forces, this denial guarantees the ability to operate without any foreseeable
consequences for illegal conduct;

(c) That this and other information available in the public domain on UAE detentions should be
sufficient for the Governments of Yemen and UAE to reconsider their respective public positions that the
UAE does not maintain any detention facilities in Yemen; to comply with their obligations under
international law to call for an immediate investigation on the involvement of their armed forces and state
organs in these violations; and to take appropriate action as required under domestic and international law
to prevent further abuses;47 and

(d) Those who are in command and control of the UAE forces that engage in detention -
related abuses in Yemen certainly fall within the designation criteria under paragraphs 17 and 18
of resolution 2140 (2014).

__________________
42
The UAE justified its presence in Yemen to the invitation made by President Hadi . UAE letter to Panel of
8 November 2017. The Panel notes that the United States provides that “the UAE deployed forces in Yemen to counter
the spread of AQAP and ISIS in Yemen at the same time as it partnered with the Saudi -led Islamic Military Alliance to
Fight Terrorism… UAE forces remained in Yemen to support local forces in counterterrorism operations. ” See
https://www.state.gov/j/ct/rls/crt/2016/272232.htm. The Panel continues to welcome any clarifications provided by the
UAE on the legal basis under which it maintains detention sites, in Yemen.
43
For the list of States identified as partners in the Saudi Arabia-led coalition, see http://www.spa.gov.sa/1682071.
44
For example, obligations under CAT.
45
https://www.state.gov/j/ct/rls/crt/2016/272232.htm. The UAE has a strategic cooperation agreement on countering
serious crime and terrorism for exchange of information and expertise between UAE and Europol.
46
https://www.uae-embassy.org/about-uae/foreign-policy/uae-counterterrorism, http://www.hedayahcenter.org/media-
details/49/news/51/latest-news/829/uae-maintains-robust-counter-terrorism-stance--us-state-department-country-
reports-on-terrorism-for-2016.
47
The Panel notes that in this respect, that the JIAT informed the Panel that it did not have the necessary mandate to
investigate UAE detention related violations. Meeting in June 2017 in Saudi Arabia.
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Appendix A to Annex 62: Summary information on individuals and entities that engaged with the UAE on
detentions

Area of
Ser Entity Name of Leader Responsibility Image 48 Relationship with the UAE

1 Security Brigadier General Wadha Omar Aden • The transfer of detainees.

Belt, Aden Abdulaziz • UAE pays salaries to Security
Commander of Security Belt Belt forces.
• UAE supports training,
intelligence and logistics.
Analysis:
• Collaborative relationship that
goes beyond training, intelligence
sharing and logistical support.
2 Aden Police Major General Shallal Ali Shaye, Aden • The transfer of detainees.
Force Director of General Security • UAE provides logistical support
Aden and provision of other resources
to Aden Police.
Analysis:
• Collaborative relationship.
• Unknown if his work with the
UAE on detainee transfers is
undertaken in his personal
capacity or on behalf of the
Government of Yemen.
3 Shabwani Lieutenant Colonel Mohammed Shabwah • Engaged in joint UAE arrest
Elite Forces al-Buhar al-Qumayshi operations.
Commander Shabwani Elite • The transfer of detainees.
Forces Analysis:
• There is a collaborative
relationship between the UAE
and the Shabwani Elite Forces on
arrest and detentions.
4 Hadrami Hadramawt • Joint UAE arrest operations
Elite Forces • Transfer of detainees.
• UAE provides training,
intelligence and other logistical
support.
Analysis:
• Collaborative relationship that
goes beyond training, intelligence
sharing and logistical support.
5 20 th Military Imam al-Nubi, Aden • UAE facilitated the release of
Camp Former commander detainee from al-Nubi.
20 th Military Camp Analysis:
• There is no collaborative
relationship between UAE and al-
Nubi on detentions.
• Operated with relative
independence from UAE.

__________________
48
Images from @demolinari at https://twitter.com/search?q=demolinari%20andsrc=typd.
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CONFIDENTIAL ANNEX NOT FOR PUBLIC DISSEMINATION

Annex 63: Detentions by ‘PSO’, ‘NSB’, and other Houthi officials

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Annex 64: Case studies on the indiscriminate use of explosive ordnance against civilian
populated areas in Yemen and Saudi Arabia (2017)

I. Violations by Houthi-Saleh Forces

1. In 2017, the Panel received information on 163 reported 1 cases of the indiscriminate use of
explosive ordnance (EO) against civilian populated areas in Ta ’izz and Ma’rib, Yemen, and one case in
Riyadh, Saudi Arabia, that are attributable to Houthi-Saleh forces. The Panel investigated ten potential
indiscriminate attacks. 2 Full case studies for three incidents are included as shown in table 64.1, and case
study summaries for six incidents are included in table 64.2. These incidents demonstrate that parties to
the conflict continue to engage in the apparent indiscriminate use of EO in proximity to the civilian
population.

2. The Panel arrived at its conclusions and findings, in respect of its findings, based on its own
independent investigations and information available in the public domain. If the H outhi-Saleh political or
military leadership can provide verifiable information on the military objectives sought to be achieved that
may counter the Panel’s conclusions and findings, then the Panel stands ready to review them.

3. The Houthi-Saleh political and military leadership has not responded to Panel requests for
information.

Table 64.1
Full case studies of the indiscriminate use of EO against civilian populated areas

Type of explosive Civilian

Appx Date Location Incident and target ordnance casualties

A 29 May 2017 Al-Nour, Ta’izz Civilian ▪ 120mm high 1 dead

neighbourhood explosive (HE) 7 injured
mortar bomb
B 6 Sept 2017 Al-Rawda, Ma’rib Civilian ▪ 120mm HE mortar 3 injured
neighbourhood bomb
C 11 Nov 2017 Riyadh, Saudi Civilian airport ▪ Short-range ballistic 0
Arabia missile
D 2 Nov 2017 Onsowa, Ta’izz Civilian ▪ 120mm HE mortar 5 dead
neighbourhood bomb 2 injured

4. In the ten incidents investigated by the Panel it finds that:

(a) The damage observed in the available imagery is consistent with the type of damage
caused by land service ammunition (for example, motor bombs and artillery shells);

(b) In some cases, although the Panel was unable to exactly identify the type of explosive
ordnance based on the available information, the Panel is almost certain that the explosions were
not due to gas explosions, the initiation of improvised explosive devices (IED), the initiation of
unexploded ordnance (UXO) or the initiation of abandoned explosive ordnance (AXO). The
locations of the explosions were in areas of conflict and within the range of weapons from known
enemy positions of the military forces participating in the conflict;

__________________
1
These cases were documented and verified by Panel sources. The Panel can share further information with the
Committee, with the consent of its sources.
2
The Panel selected these 18 cases based on the availability of technical evidence, imagery, witnesses, medical records,
GPS coordinates, and the ability of Panel investigators to reach the area. Yet, in only 10 did technical evidence confirm
the use of explosive ordnance.
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(c) In all the cases investigated, there was no demonstrable evidence that the civilians in, or
near these objects, who are prima facie immune from attack, had lost their civilian protection;

(d) Even if in some of the cases that follow, the Houthi-Saleh fighters, or the Abu al-Abbas
group (for incident in appendix D), have targeted legitimate military objectives, the Pane l finds
that it is highly unlikely that IHL principles of proportionality, and precautions in attack were
respected in these incidents; and

(e) The cumulative effect on civilians and the civilian object demonstrates that even if
precautionary measures were taken, they were largely inadequate and ineffective.

5. The Panel also concludes that:

(a) In the absence of any verifiable information from Houthi -Saleh forces, the evidence
gathered strongly demonstrates that Houthi-Saleh forces engaged in the indiscriminate use of EO
in densely populated civilian areas, in violation of the principles of IHL; 3

(b) In their use of SRBM, Houthi-Saleh forces failed to take account of the inherently
indiscriminate nature of the weapon in that:

(i) SRBM are specifically designed to be area weapons, as precision accuracy cannot
be guaranteed;

(ii) Since the blast and fragmentation danger areas are primarily based on the size
and design of the explosive warhead, this missile’s likely impact on civilians was
foreseeable, especially when directed at civilian populated areas; and

(iii) As such weapons have a known Circular Error Probability (CEP) 4 of up to

1,000m, they should not be used against targets within 1,000m of the civilian population.

6. The Panel stands ready to provide the Committee with further information if requested, but in the
interest of brevity, provides only summaries of the cases in table 64.2 below.

Table 64.2
Summary case studies of the indiscriminate use of EO against civilian targets

Type of explosive Civilian

Ser Date Location Incident and target ordnance casualties

E 18 Jan 2017 Al-Nour, Ta’izz Residential 120mm HE 9 dead

area mortar bomb 8 injured
F 21 May 2017 Al-Jahmila, Ta’izz Residential HE EO TBC 2 dead
area
G 21 May 2017 Tha’baat, Ta’izz Residential HE EO TBC 3 dead
area 3 injured
H 21 May 2017 Al-Hamaira, Ta’izz Commercial HE EO TBC 2 dead
area 5 injured

__________________
3
Customary international law, which binds Houthi-Saleh forces, requires parties to conflicts to distinguish between
civilians and combatants. The International Court of Justice (ICJ) has held that “indiscriminate shelling is in itself a
grave violation of humanitarian law” Case Concerning Armed Activities on the Territory of the Congo (Democratic
Republic of Congo v. Uganda), Judgment of 19 December 2005, para. 208.
4
The CEP is a measure of a weapon system's precision. It is defined as the radius of a circle, centered on the mean,
whose boundary is expected to include the landing points of 50% of the missiles fired.
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Type of explosive Civilian

Ser Date Location Incident and target ordnance casualties
I 30 Jun 2017 Al-Jumhuri, Ta’izz Residential 106mm RCL 5 1 dead
area 9 injured
J 21 Sep 2017 Senei, Ta’izz Residential RPG-7 variant 0
area

7. IHL requires military commanders and those responsible for planning and executing decisions
regarding attacks to take all feasible precautions to avoid, and in any event to minimize, incidental loss of
civilian life, injury to civilians and damage to civilian objects. 6 Unless Houthi-Saleh military or political
forces provide evidence to the contrary, the Panel finds that there is compelling evidence that the
commanders of the forces involved failed to take all feasible precautions to avoid or to minimize, incidental
loss of civilian life, injury to civilians and damage to civilian objects.

8. The Panel also documented the use of indiscriminate use of EO against civilian houses. The Panel
received 161 reported cases where Houthi-Saleh forces have allegedly used explosive ordnance to
intentionally damage or destroy houses (figures 64.1 and 64.2).

Figure 64.1 Figure 64.1

Example of damage to house in Ta’izz caused Example of damage to house in Ta’izz
by indiscriminate use of EO caused by indiscriminate use of EO

9. The indiscriminate use of explosive ordnance against civilian locations in Yemen and Saudi Arabia
committed by the Houthi-Saleh forces, falls within paragraph 17 and/or paragraph 18 of resolution 2140
(2014). Member States should consider the continued occurrences of widespread civilian casualties,
including children, because of the indiscriminate use of EO is a veritable threat to peace, security, and
stability in Yemen.

10. Given that this regular and routine occurrence of use of EO cannot occur without at least the
continued acquiesce of its leadership, the Security Council should consider expanding the narrative
summary of the reasons for the listing of Abdulmalik al-Houthi (YEi.004) to reflect the threats to peace,
security, and stability associated with this indiscriminate use of EO. In this context, the Council should
also consider:

(a) The threats issued by the leadership of the Houthi-Saleh forces, including the chairman of
the supreme revolutionary committee, Mohammad Ali al Houthi, who threatened further attacks
on oil installations in Saudi Arabia, and commercial ships carrying oil, as reprisals, which are

__________________
5
Recoilless Rifle.
6
See Article 13(1) of Additional Protocol II to the Geneva Conventions and CIHLR 15 - 22.
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prima facie civilian objects immune from attack. 7 Saleh al Samad, head of the supreme political
council, also referred to targeting of “capitals” of countries as reprisals; 8 and

(b) The political office also reportedly issued a statement that "All airports, ports, border
crossings and areas of any importance to Saudi Arabia and the UAE will be a direct target of our
weapons, which is a legitimate right". 9 These statements do not distinguish between civilian
objects and military objectives. Intentionally launching attacks against civilians and civilian
objects violates IHL. 10 As far as the Panel is aware, these statements were not denounced by
Abdulmalik al-Houthi (YEi.004). 11

11. The Panel finds:

(a) That after such a prolonged period of conflict, Abdulmalik al -Houthi (YEi.004) would be
aware of the ballistic performance of the weapons systems used by their forces and their target
effects. Yet, as the Panel reported in S/2017/81, and has identified in this report, multiple incidents
of the indiscriminate use of EO against the civilian population of Ta’izz and Ma’rib have continued
during 2017. These incidents attributable to the Houthi -Saleh forces, are violations of IHL and
constitute a threat to peace, security and stability of Yemen;

(b) That in respect of the missiles fired at Saudi Arabia, even if one allows for the possibility
that Abdulmalik al-Houthi (YEi.004) did not consent to each individual missile strike against
Saudi Arabia, he is responsible for a policy adopted by the Houthi -Saleh leadership that allows for
the continued use of these missiles against Saudi Arabia; and

(c) Given the foreseeable political and military repercussions, it is inconceivable that the
missile launched on 4 November 2017 at King Khalid International Airport, could have taken place
without the knowledge and prior consent of Abdulmalik al-Houthi (YEi.004). The Panel finds that
this missile strike violated IHL and constituted a threat to peace, security and stability of Yemen.

II. Violations by anti-Houthi forces (including the Abu al-Abbas group)

12. Anti-Houthi forces also violate IHL when it establishes military installations in densely populated
civilian areas as they are exposing civilians to the dangers arising out of conflict. 12 If done intentionally
and systematically, then it is likely that civilians and civilian objects are being used as shields to avoid
attack, which is in violation of IHL. 13 In four incidents in which EO detonated within the civilian
population, anti-Houthi forces had established their checkpoints in densely residenti al areas within 700m
of the impact points. The Panel has also investigated one case of use of explosive ordnance where, based
on technical evidence, it appears that the a 120mm high explosive mortar bomb was fired from an area
under the control of anti-Houthi forces, probably areas under the control of Abu al -Abbas. 14 On
2 November 2017, this mortar bomb detonated in al-Onsowa neighbourhood, Ta’izz, killing five children
and injuring two others, highly likely by Abu al-Abbas group (appendix D).

__________________
7
https://www.facebook.com/permalink.php?story_fbid=163853657542656andid=149354595659229 .
8
http://www.ansarollah.com/archives/124112.
9
https://www.alaraby.co.uk/english/news/2017/11/8/houthis -threaten-to-attack-uae-and-saudi-airports.
10
Common Article 3 to the Geneva Convention, CIHLR 1- 10.
11
In at least one televised speech al-Houthi is reported to have stated that “his ballistic missiles were capable of
reaching the United Arab Emirates' capital of Abu Dhabi and anywhere inside Saudi Arabia... I f the Saudi regime and
with a green light from the US attack Hodeidah then we have to take steps that we haven't taken before ”. See
http://www.arabnews.com/node/1161156/middle-east.
12
See for example, CIHLR Rules 22 and 23.
13
See for example, CIHLR 97.
14
al-Onsowa, 2 November 2017.
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Appendix A to Annex 64: Mortar bomb strike on civilian area, al-Nour, Ta’izz, (29 May 2017)

1. At approximately 23:00 hours on 29 May 2017, one 120mm HE mortar bomb detonated in al-Nour, Ta’izz,
killing one civilian and injuring seven others, including four children.

2. Analysis of imagery of fragmentation (figures A.64.1 and A.64.2) recovered from the explosion indicates
that the explosive ordnance used was a 120mm HE mortar bomb. All parties to the conflict have access to this type
of weapon and ammunition. 15

3. Given that the nearest anti-Houthi forces checkpoint was approximately 500m from the house and anti-
Houthi forces control the area, it is highly likely that the perpetrators were Houthi-Saleh forces.

Figure A.64.1 Figure A.64.2

Post explosion - Tail fragment Post explosion - Tail fragment

4. This civilian, neighbourhood has now been hit over three times since the beginning of the conflict.

__________________
15
Similar in design to the round shown here: http://www.armaco.bg/en/product/mortar-bombs-c19/120mm-mortar-
rounds-p474. The Panel does not, however, suspect this company of any involvement in the conflict. It is for
illustrative purposes only.
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Appendix B to Annex 64: Mortar strike on a residential building, al-Rawda, Mar’ib, (6 September 2017)
(c)
1. At approximately 12:00 hours on 6 September 2017, one 120mm HE mortar bomb detonated in a
residential building in al-Rawda, Ma’rib, injuring three children.

2. Analysis of imagery of fragmentation (figures B.64.1 and B.64.2) recovered from the explosion indicates
that the explosive ordnance used was a 120mm HE mortar bomb. All parties to the conflict have access to this type
of weapon and ammunition.

Figure B.64.1 Figure 2.B.64

120mm HE mortar bomb fragment Impact point

3. The building is in a neighbourhood controlled by the Government of Yemen. The closest

government establishment is a police station located approximately 700m from the impact point. The Panel
finds, based it is highly likely that the perpetrators were Hout hi-Saleh forces.

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Appendix C to Annex 64: SRBM missile on King Khalid International Airport, Riyadh, Saudi Arabia (4
November 2017)

1. At 20:07 hours (local time) on 4 November 2017 a short-range ballistic missile (SRBM) was
launched against King Khaled International Airport (KKIA) in Riyadh. 16

2. The Panel finds it almost certain that Houthi-Saleh forces were responsible for launching the attack
based on:

(a) Media reports quoting Houthi-Saleh officials, who stated that their target was KKIA; 17

(b) No denial in the public domain by the Houthi-Saleh forces;

(c) Technical analysis of the SRBM (see annex 36); and

(d) The flight path of the SRBM. 18

3. The Panel finds it almost certain that Houthi-Saleh forces targeted the KKIA, which is a civilian
airport, with some military equipment and installations. While the Houthi -Saleh forces insisted after the
missile launch that the target was the military installations within the airport, the Panel notes that the
Houthi-Saleh commanders should have reasonable grounds to know the weapons unpredictable effects
when directed at a civilian establishment.

4. The Panel finds that SRBM is not capable of precision targeting at the 1,065km range this missile
travelled as it has a Circular Error Probability of 750m to 1,000m. SRBM are specifically designed to be
area weapons, as precision accuracy cannot be guaranteed. Since the blast and fragmentation danger areas
are primarily based on the size and design of the explosive warhead, this missile ’s likely impact on civilians
was foreseeable, especially when directed at civilian populated areas. 19

5. Consequently, the commanders who authorized the launch of the missile we re reckless and failed
to take into consideration, or wilfully disregarded, the fact that a disproportionately number of civilians
and civilian objects could be affected by targeting KKIA.

__________________
16
24°57'29.5272''N, 46°42'2.8044''E.
17
https://www.sabanews.net/ar/news478520.htm.
18
“The General Authority of Civil Aviation said some remnants of the missile landed inside the airport perimeter ”.
http://www.arabnews.com/node/1188336/saudi-arabia. Another remnant landed in a civilian house in a populated area in
Riyadh.
19
Over 40 airlines operate from KKIA and according to the latest statistics (2015) over 20 million passengers used the
airport in 2015. The airport is 35km from the densely-populated city of Riyadh. https://www.riyadh-airport.com.
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Appendix D to Annex 64: Mortar strike on al-Onsowa, Ta’izz (2 November 2017)

1. On 2 November 2017, a 120mm high explosive mortar bomb detonated in al -Onsowa

neighbourhood, Ta’izz, killing five children and injuring two others.

2. Analysis of imagery of fragmentation (figures D.64.1 and D.64.2) recovered from the explosion indicates
that the explosive ordnance used was a 120mm high explosive mortar bomb. All parties to the conflict have access
to this type of weapon and ammunition.

Figure D.64.1 Figure D.64.1

120mm HE mortar bomb tail unit 120mm HE mortar bomb tail unit

3. The distinctive fragmentation pattern (figure D.64.3) provides evidence as to the direction the mortar
bomb was fired from. The Panel finds that the firing point was to the South East of the impact point (overview at
figure D.64.4).

Figure D.64.3 Figure D.65.4

82mm HE mortar bomb tail unit 20 Target area overview 21

4. Abu al-Abbas forces are the only armed group operating in the area where the mortar firing point was
located (see figure D.65.5).

__________________
20
The top of the image is North.
21
Ibid.
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Figure D.65.5
Mortar base plate location22

__________________
22
The Mortar Base Plate is the term used to describe the geo-position of the mortar from where the rounds originated.
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Appendix E to Annex 64: Imagery supporting findings for case studies E to J - 9

Table E.64.1
Imagery supporting findings for case studies E to J 23

Type of explosive Civilian

Case Date Location Image ordnance casualties

E 18 Jan 2017 al-Nour, Ta’izz ▪ 120mm HE mortar 9 dead

bomb 8 injured

F 21 May 2017 Jamila ▪ HE based on crater 2 dead

and fragmentation
splatter

G 21 May 2017 Thabaat, Ta’izz ▪ HE based on crater 3 dead

and fragmentation 3 injured
splatter
H 21 May 2017 al-Himaira, Ta’izz ▪ HE based on crater 2 dead
and fragmentation 5 injures
splatter
I 30 Jun 2017 al-Jumhuri, Ta’izz ▪ RCL tail unit 1 dead
9 injured

J 21 Sep 2017 Senei, Ta’izz ▪ RPG tail unit -

__________________
23
Imagery for this annex was provided by residents, human rights investigators and other confidential sources who were
in the area or who visited the area in its immediate aftermath. This imagery can be m ade available to the Committee for
further examination.
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Annex 65: IHL and HR violations relating to detentions by Yemeni military and security
forces in Yemen

I. Terminology
1. In this annex, the terms “arrest”, “detention”, and “detainee” are used to describe the act of depriving an
individual of his liberty, the consequential deprivation of liberty and those subjected to the deprivation of liberty,
respectively, without prejudice to the lawfulness of those acts and irrespective of whether detainees are subjected
to internment1 or criminal detention.2 The Panel received information from both former and current detainees, but
because of veritable threats against detainees and their families, the Panel will refrain from providing more
information on their current situation. The Panel defines the terms arbitrary arrest and detention, torture, enforced
disappearance, and secret detentions, in accordance with international law and jurisprudence and, where such is
unavailable, in line with standards adopted by UN treaty bodies. See annex 62 for an elaboration of these terms.

II. Yemeni military and security forces associated with violations

2. This annex contains information with respect to individuals and leaders who have committed or who hold
command responsibility over individuals and entities that have committed violations of IHL and IHRL. These
violations include arbitrary arrest and detention, failure to respect due process, torture, ill treatment, enforced
disappearance, and arbitrary deprivation of life (table 65.1). The Government of Yemen identifies these individuals
and entities as organs of the State (table 65.2 and 65.3).3

Table 65.1
Violations summary 4

Denial of
No of Arbitrary Enforced medical Detainee
individuals arrest / disappearanc Ill assistanc transfers
Serial Organization / individual investigated 5 detention e Deaths Torture treatment e with UAE

1 Shallal Ali Shaye 5 ✓ ✓ ✓ ✓ ✓ ✓

2 Abdul Ghani Shaalan 7 ✓ ✓ ✓ ✓
3 Ali Abdullah Taher 2 ✓
4 Ghassan al-Aqrabi 100+ ✓ ✓ ✓ ✓
5 Imam al-Nubi 5 ✓ ✓ ✓ ✓ ✓
6 Security Belt in Aden 6 ✓ ✓ ✓ ✓ ✓
7 Security Belt in Lahij 7 ✓ ✓ ✓

8 Shabwani Elite Forces 2 ✓ ✓ ✓

9 Hadrami Elite Forces 3 ✓ ✓ ✓

__________________
1
The term ‘internment’ refers to detention for security reasons in situations of armed conflict, i.e. the non -criminal
detention of a person based on the serious threat that his or her activity pose s to the security of the detaining authority
in relation to an armed conflict. See Commentary to Common Article 3.
2
This means detention related to a criminal process. The Panel is only concerned those detentions linked to the conflict
in Yemen and where IHL and HR violations can be established.
3
Meeting with Ministry of Interior, 2 October 2017. The conduct of any State organ is considered an act of that State
under international law. See Article 4 of Articles on State Responsibility.
4
1, 4, 6, 8 and 9, in their joint operations with the UAE, highly likely operated outside the Government of Yemen ’s
command and control.
5
Some of the same individuals are affected by more than one listed perpetrator.
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Table 65.2
Summary of entities investigated (2017)

De facto
responsibilit
Location Entity Leader De jure responsibility y

Aden Security Brigadier General Wadha Omar Government of Yemen UAE

Belt Abdulaziz
Lahij Security Colonel Hader al-Shukatry Government of Yemen UAE
Belt
Hadramaw Elite forces TBC. Government of Yemen UAE
t
Shabwah Elite forces Lieutenant Colonel Government of Yemen UAE
Mohammed Salem al-Buhar al-
Qomaishi

Table 65.3
Summary of individuals investigated (2017)
Locatio
n Individual Role De jure responsibility De facto responsibility

Aden Major General Director of General Government of Unknown if his work with
Shallal Ali Shaye Security, Aden Yemen UAE in detainee transfers
are undertaken in his
personal capacity or
clandestinely on behalf of
the Government of Yemen.
Aden Ghassan al-Aqrabi Supervisor of Bir Ahmed Unknown. 6 UAE and Security Belt,
I and II Aden.
Aden Ayman Tariq Manager of Bir Ahmed I Unknown. 7 UAE and Security Belt,
Aden.
Aden Imam al-Nubi 8 Former Commander of Government of NA
Camp 20 Yemen. 9
Marib Brigadier General Former Director of Government of Investigations continue.
Ali Abdullah Security, Marib Yemen
Taher
Marib Colonel Abdul Special Forces Government of Investigations continue.
Ghani Shaalan Commander, Marib Yemen

A. Major General Shallal Ali Shaye

3. The Government of Yemen continues to consider Major General Shallal Ali Shaye, the Director of
General Security in Aden, as an official of the Government of Yemen. He falls under the responsibility of the
Ministry of Interior. He continues to receive orders directly from President Hadi. Shallal Ali Shaye supervises:

__________________
6
It is possible that no entity would claim de jure responsibility as Bir Ahmed I was a secret detention site in that
authorities, until late October 2017, denied its existence to families, and those in that facility were forcefully
disappeared until their relocation to Bir Ahmed II.
7
Ibid.
8
Imam Ahmed Muhammed Abdu al-Salwy.
9
Camp 20 was under the oversight of the Security Belt and the Director of General Security, Aden.
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(a) Aden Police10 and

(b) Security Belt of Aden.11

4. While Major General Shallal Ali Shaye maybe under de jure command and control of the Government of
Yemen, he also continues to work simultaneously with the UAE on detentions. For example,

(a) At least four individuals detained at a house under his control in at -Tawahi were
subsequently transferred to the UAE, where they were subjected to enforced disappearance for a
prolonged period;12 and

(b) Major General Shallal Ali Shaye facilitated the release of other detainees from the custody
of the UAE.13

5. Arbitrary arrests and deprivations of liberty, torture, enforced disappearance and other due process
violations also occur in a house under the control of Major General Shallal Ali Shaye in At-Tawahi. 14 Those
detained in this house were kept between 12 to 72 hours and were then transferred elsewhere, including to Bir
Ahmed I and the UAE detention site in Bureiqa.

6. The Panel finds that the deprivations of liberty in the house under his control occur outside the legal
framework of arrests and detentions established by the Yemeni legal system.

7. The Panel continues to investigate the role and influence of the UAE on the Aden Police outside its
interaction with Major General Shallal Ali Shaye.15

B. Security Belt of Aden

8. The Security Belt in Aden was established by President Hadi. The Government of Yemen considers the
Security Belt as an organ of the State under the responsibility of the Ministry of Interior. 16 The Security Belt of
Aden work closely with the UAE in respect of deprivations of liberty. For example:

(a) There were multiple detainees transferred between UAE and the Security Belt custody; 17

(b) The Security Belt facilitated the arrest and release of detainees in UAE custody;18

__________________
10
The Aden Police receive their salaries from the Government of Yemen, although as at October 2017, they had not
received them for 8 months. Panel meeting with the Deputy Police Chief of Aden on 2 October 2017.
11
Confidential official sources. The Security Belt forces receive salaries from the UAE. Panel meeting with Brigadier
General Wadha Omar Abdulaziz on 2 October 2017.
12
Sources: detainees and family members. Three of the detainees were interrogated on the ba sis they were
supportive/members of AQAP.
13
Sources: detainee and family members.
14
Detainees and their families. One detainee informed the Panel that UAE soldiers also participated in interrogations at
this house. The Panel continues to investigate. Media reports on detention-related abuses undertaken by Shallal Ali
Shaye include http://hournews.net/news.php?id=79051, https://www.hunaaden.com/news41410.html,
https://theyemen.net/ ‫ بعد‬- ‫ شايع‬- ‫ لـشالل‬- ‫ سري‬- ‫ سجن‬- ‫ في‬- ‫ معتقل‬- ‫ وفاة‬/.
15
Aden police state that the UAE had played a positive and supportive role for many prisoners who were rele ased by the
security services in Aden and Hadramawt. The UAE provided the “Department of Aden security, cars and vehicles, and
the rehabilitation and furnishing of police stations. ” See also http://www.emirates247.com/news/emirates/uae-offers-
further-support-to-aden-police-2017-08-09-1.657318.
16
Meeting with Ministry of Interior and the Panel on 2 October 2017.
17
In all cases documented by the Panel in Aden, the Security Belt was identified as the entity that arrested individuals,
whether those individuals were then transferred to Major General Shallal Ali Shaye ’s custody, to the UAE, or the
Mansoora Central Prison.
18
In Aden, the Panel did not document any joint arrest operations with UAE. It has, to date, not found any individuals
released by the UAE directly, without the Security Belt’s participation.
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(c) In Bir Ahmed I, while it is said to be under the control of the Security Belt, UAE officers exerted
significant amount of control, for example by removing detainees from the site (figure X.1);

(d) In one incident investigated the same detainee was tortured by the Security Belt, then handed
over to the UAE, where the UAE continued to torture him, demanding the same information.

9. Yemeni official sources (military and civilian) informed the Panel that the Security Belt in Aden is not
under the de facto control of the Government of Yemen, but the UAE. The salaries of the Security Belt are paid by
the UAE. One military source informed the Panel that while an officer of General Staff rank level receives around
YER 30,000 (US$120) every 2 – 3 months as salary from the Government, the basic salary for a soldier in the
Security Belt is SAR 3,500 (US$934) per month from the UAE. Thus, official confidential sources state that the
Government is therefore unable to exercise operational control over these forces.

C. Ghassan al-Aqrabi and Ayman Tariq

10. The Panel finds that Ghassan Abdul Aziz al-Aqrabi and Ayman Tariq19 were responsible for the continued
arbitrary deprivation of liberty of over 100 detainees who were in Bir Ahmed I, which was established around
August 2016 (figure 65.1 and 65.2).

11. These persons were detained without access to their families or legal representation. They had no access
to any entity, judicial or administrative, to challenge their detention. They were not provided reasons for their
continued detention, and all individuals investigated by the Panel had previously been subjected to detention-related
abuses and torture by identified authorities (annex 61). 20

Figure 65.1 Figure 65.2

Bir Ahmed detention location (21 July 2016) 21 Bir Ahmed detention location (07 November 2017) 22

12. In October 2017, the detainees commenced a hunger strike calling for their release or referral to a judicial
process. On 12 November 2017, they were transferred to Bir Ahmed II, a detention site funded by UAE, located
close to Bir Ahmed I (figure 65.1), also said to be administered and supervised by Ghassan al-Aqrabi. On
13 November 2017, their case files were handed to the Attorney General of Yemen, Ahmed al-Awash. In December
2017, some detainees had access to their families and some others were released around the last week of December
2017.

__________________
19
The rationale for their selection as detention facility administrators seems to be tha t the detention facility is
established within an area under the control of the al-Aqrabi family. The Panel continues to investigate the activities of
this family.
20
Information withheld to protect detainees.
21
Source: Imagery obtained by the Panel. Detainees and families of detainees assisted the Panel to identify the location.
22
Source: Imagery obtained by the Panel. Those visiting the detention center assisted the Panel to identify the location.
It is also based on information provided by the detainees of a new detention site being built next to Bir Ahmed I and
confirmed by satellite imagery.
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Figure 65.3
Visit of Attorney General and Major General Shallal Ali Shaye to Bir Ahmed II 23

13. The Panel cannot confirm that all detainees in Bir Ahmed I were transferred to Bir Ahmed II given that
the identities of the detainees in Bir Ahmed I were not made available by the detaining authorities and the
Government of Yemen.

__________________
https://twitter.com/demolinari/status/930092238117380096. The Attorney General is third from right. Brigadier
23

General Wadha Omar is behind the Attorney General to the left. Major General Shallal Ali Shaye is second from right.
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Figure 65.4
Bir Ahmed I and Bir Ahmed II 24

D. Security Belt of Lahij

14. The Government of Yemen considers the Security Belt as an instrument of the State under the
responsibility of the Ministry of Interior.25 In detention related investigations, the Panel has not yet identified any
detainee transfers between the UAE and the Security Belt in Lahij.

15. The Panel finds that in 2017, the Security Belt in Lahij was responsible for the death of a 16-year-old,
enforced disappearance of another individual, and four extra-judicial executions. The Security Belt in Lahij was
also involved in the death of a 14-year-old child whose younger brother was alleged to be an AQAP affiliate. For
Colonel Hader al-Shukhaty is the Commander of the Security Belt in Lahij (see annex 6)

__________________
24
Source: Imagery obtained by the Panel. 7 November 2017.
25
Meeting with Ministry of Interior and the Panel on 2 Oct ober 2017. The Security Belt in Lahij is under the
supervision of Saleh al-Subaihi, Director of General Security, Lahij. Official confidential UAE sources.
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Figure 65.5
Colonel Hader al-Shukhaty26

E. Colonel Abu Mohammad Abdul Ghani Shaalan 27

15. The Special Forces Commander is a formal position of the Government of Yemen, established prior to
the conflict and is under the operational command and control of the Government of Yemen.

16. The Panel investigated the involvement of Colonel Abu Mohammad Abdul Ghani Shaalan, the Special
Forces Commander of Ma’rib and his forces, in an incident relating to the death of a 15-year old child and injuries
to an 11-year old child.28 These incidents occurred when the Special Forces attempted to disperse a demonstration
in Ma’rib, in October 2017, for which prior security approval was obtained. 29 A clash broke out between the
protesters and the Special Forces following the death of the 15-year-old.30 The Special Forces refused access of the
families to the injured child in the hospital for a week, refused to release the body of the dead child for a prolonged
period, and forcefully disappeared five individuals for prolonged periods, four of whom were subsequently
released. The release of the other is pending tribal negotiations.31

__________________

27
Originally from Hajjah Governorate. https://web.facebook.com/ -‫الخاصة‬-‫األمن‬-‫قوات‬-‫قائد‬-‫شعالن‬-‫عبدالغني‬-‫العقيد‬-‫محبي‬
1836740393277690 -‫ مأرب‬/?_rdc=1and_rdr.
28
Eye-witnesses identified Shaalan at the site of the incident.
29
Document with Panel.
30
The events surrounding the death of the child is unclear. It is possible that the child resisted arrest. It is also clear tha t
there was an armed exchange as one officer died and another was seriously injured (medical sources).
31
Information as at 10 December 2017. The Panel was informed of other serious detention related abuses undertaken by
the Special Forces in Ma’rib, which are not documented here to protect indi viduals.
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Figure 65.6
Colonel Abu Mohammad Abdul Ghani Shaalan32

F. Brigadier General Ali Abdullah Taher

17. Ali Abdullah Taher was the Director for General Security in Ma’rib. This is an official post under the
control of the Government of Yemen. During his tenure, he was directly involved in one incident where he
demanded a “suitable exchange” for the release of a detainee in his custody, Mustafa Hussain al-Mutawakel.33 No
other reasons were provided for the refusal to release al-Mutawakel.

18. Mostafa Huseain al-Mutawakel was at the time of his arrest the President for the General Authority for
Investment of Yemen and a Professor at the University of Sana’a. He was arrested on 27 April 2017 at Bab-al-Falej
checkpoint in Ma’rib.34 The checkpoint is under the control of security forces loyal to the Government of Yemen.
Al-Mutawakel was travelling from Sayun to Sana’a on board a civilian bus. His family is unaware of his
whereabouts since his arrest.35 There is no evidence that al-Mutawakel had lost his civilian status or protection at
the time of arrest (see annex 66). IHL allows civilians to be detained if they pose an imminent security threat and
then, only for as long as that threat is existent. Any attempt to detain a civilian until a suitable prisoner exchange
can take place may also amount to hostage taking.

18. The Panel documented another arrest and detention at Bab-al-Falej checkpoint, where the detainee was
also forcefully disappeared after the detention, but was subsequently released following tribal negotiations. There
were no reasons provided for his arrest other than that he was related to a prominent family aligned with the Houthis.

__________________
Image: https://web.facebook.com/ -‫مأرب‬-‫الخاصة‬-‫األمن‬-‫قوات‬-‫قائد‬-‫شعالن‬-‫عبدالغني‬-‫العقيد‬-‫محبي‬
32

1836740393277690 /?_rdc=1and_rdr.
33
The name is divulged with the consent of the family.
34
At approximately 15 0 21’25.48”N, 45 0 19’45.12E.
35
In the latter half of 2017, the Panel was informed by official sources that Mustafa Hussain al -Mutawakel had been
transferred to an as to yet unidentified detention facility in Saudi Arabia. The Panel continues to investigate.
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Figure 65.7
Ali Abdullah Taher 36

__________________
Image: https://web.facebook.com/ -‫مأرب‬-‫الخاصة‬-‫األمن‬-‫قوات‬-‫قائد‬-‫شعالن‬-‫عبدالغني‬-‫العقيد‬-‫محبي‬
36

1836740393277690 /?_rdc=1and_rdr.
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CONFIDENTIAL ANNEX NOT FOR PUBLIC DISSEMINATION

Annex 66: Case study on relating to detentions by the Government of Yemen

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CONFIDENTIAL ANNEX NOT FOR PUBLIC DISSEMINATION

Annex 67: Assassination of a patient and attacks against medical personnel at

Revolution Hospital, Ta’izz (24 March - 5 April 2017)

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Annex 68: Houthi-Saleh recruitment of children

1. The Panel conducted investigations aiming to identify individuals and networks operating in Yemen that
engage in child recruitment. 1 In Houthi-Saleh controlled areas, there are local networks of former and current
fighters and Houthi-Saleh loyalists that continue to recruit children. The Panel has identified two individuals who
recruited a total of five children; four subsequently returned to their families and one returned to fighting. Details
are contained in confidential annex 69. Of the two recruiters, one was a fighter forced to retire due to injury, the
other is a current fighter. The Panel finds that there is a systematic network of recruitment within the Houthi-Saleh
forces. Recruiters are deployed to their own residential areas, as they are known to the local population, which
enhances the recruitment process.

2. These five cases represent only a fraction of children who have been recruited into Houthi-Saleh forces,
sent to the front lines, and then being injured, maimed, or killed in the conflict. 2 The Panel finds that there is
prevailing impunity associated with child recruitment. For example, in one incident documented by the Panel, the
officers of the ‘14th October’ Police Station in Sana’a initially refused to record a complaint of the abduction of
children removed from the parents’ custody without their consent, because the children had been recruited (i.e. they
were not missing).

3. On 19 October 2017, Hassan Mohamed Zaid, the Sana’a based minister for youth and sports, and the head
of the al-Haq party, called for the closure of schools with students being sent to battle-fronts. He stated on social
media:

"What if school study stops one year and all the youths and their teachers go for military
service?

Is not this going to feed the fronts with hundreds of thousands for decisive battle?

High school students used to be forced to stop study for one year waiting for documents .

What is the difference then?"

5. He added: “Wouldn’t we be able to reinforce the ranks with hundreds of thousands (of fighters) and win
the battle?”, and then criticized those who complained about his proposal stating that: “People close the schools
under the pretext of a strike and when we think about how to take advantage of this situation, they take offence”.3
The Panel notes that on 21 October 2017, after widespread public criticism, he changed his statement to say that
he originally referred to university students.

6. On 6 November 2017, the Saudi Arabia-led coalition issued a statement listing Hassan Mohamed Zaid as
one of the forty men “responsible for planning, executing and supporting various terrorist activities by the Houthi
terrorist group”. 4 It is not clear what ‘terrorist activities’ were undertaken by the said individual. The Panel
continues to investigate.

__________________
1 In this annex, individuals are considered to be children when they were under 18 years of age at the time of their
recruitment. The “Optional Protocol to the Convention on the Rights of the Child on the involvement of children in
armed conflict”, to which Yemen is a party (2 March 2007), states that armed groups that are distinct from the
armed forces of a State should not, under any circumstances, recruit persons under the age of 18 y ears. See Article
4(1).
2
See S/2017/821. The United Nations verified 517 cases of the recruitment in Aden, Abyan, Amran, Sana ’a and Ta‘izz.
359 verified cases of recruitment and use were attributed to the Hou this and affiliated forces. Other perpetrators
included the anti-Houthi forces, Ansar al-Sharia, AQAP and the Yemeni Armed Forces.
3
https://www.theguardian.com/world/2017/oct/20/yemen-minister-send-our-children-to-war. All relevant tweets are
with the Panel.
4
https://english.alarabiya.net/en/News/gulf/2017/11/06/Saudi-Arabia-announces-millions-of-dollars-in-bounty-for-40-
wanted-in-Yemen-.html.
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Figure X.1
Original tweet by the minister for youth and sports, 19 October 2017

7. The fact that a minister in the Houthi-Saleh forces openly advocated for the closure of schools and
recruitment of children/students is particularly problematic in a context where students, parents, and
teachers alike, are feeling the effects of the economic crisis, are struggling to continue educati on of
children, and are resisting proactive child recruitment networks in their villages. This type of statement,
from a person in authority, may be construed as implicit authority and encouragement for the continuing
Houthi-Saleh recruitment and use of children in conflict. The Panel finds that this type of incitement is a
threat to the peace, security, and stability in Yemen.

8. The Panel finds that the following also contributes to increased recruitment of children:

(a) The non-payment of salaries results in children being compelled to search for economic
alternatives on behalf of their families. The only well-paid employment opportunities for children
are with the Houthi-Saleh forces (the children are paid approximately 15,000 – 20,000 Yemeni
Riyal (60 – 80 US$);

(b) The disruption to education means that children often have little to do, this making them
vulnerable to street level recruitment;

(c) Parents cannot offer financial or lifestyle alternatives to induce the children to return to
families after they have been recruited;

(d) As families continue to live in areas controlled by the Houthi -Saleh forces, they are afraid
to speak out against the recruitment, thus allowing recruitment to continue unchallenged; and

(e) For parents with financial means, the airport closure and visa restrictions means that these
parents cannot send or take the children out of the country for their own protection.

9. There are also parents whom willingly, or are forced to, allow their children to be recruited because of
financial considerations or loyalty to the cause. 5

__________________
5
Multiple human rights activists.
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10. The Panel finds that Houthi-Saleh leadership also incurs command responsibility for these continuing
violations,6 and underscores that in current prevailing circumstances of regular and widespread recruitment and
use, such recruitment and use of children in conflict is, at minimum, a war crime. 7

__________________
6 Under customary IHL, commanders and other superiors are criminally responsible for war crimes committed by
their subordinates if they knew, or had reason to know, that the subordinates we re about to commit or were
committing such crimes and did not take all necessary and reasonable measures in their power to prevent their
commission, or if such crimes had been committed, to punish the persons responsible. See, for example, ICRC
Customary IHL Rule 153. The Panel highlights that not only military personnel but also civilians can be liable for
war crimes based on command responsibility.
7 See Statute of the International Criminal Court Article 8 (e) (vii). See also ICRC Customary IHL Rules 13 6 and

137.
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CONFIDENTIAL ANNEX NOT FOR PUBLIC DISSEMINATION

Annex 69: Confidential case studies of Houthi-Saleh recruitment of children

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Annex 70: IHL violations relating to Sana’a airport closure

I. Introduction

1. The Saudi Arabia-led coalition closed Sana’a airport to all commercial traffic on 9 August 2016.
On 6 November 2017, the Saudi Arabia-led coalition announced that it would temporarily close “all Yemeni
ground, air, and sea ports… while taking into consideration the continuation of the entry and exit of
humanitarian supplies and crews” 1 On 23 November 2017 the Saudi Arabia-led coalition announced the
opening of the airport to UN flights and by 29 November 2017, ICRC, MSF and UN flights had resumed
operations into the airport.

2. Yet, the airport has continued to be inaccessible to commercial flights since August 2016. This has
created significant humanitarian issues for those who are c hronically ill, who cannot leave the country to
seek medical treatment by alternative routes, and whose access to medical care has been affected by the
conflict; 2 and for those with protection concerns or who are fleeing persecution and cannot travel via o ther
means.

II. IHL and HR violations relating to patients seeking medical care abroad

3. According to the Sana’a based ministry of health, as at August 2017 approximately 10,000
Yemenis are estimated to have died from health conditions for which they wer e seeking medical treatment
abroad. 3 The Panel was provided details on two cases where patients have died, where the closure of the
airport potentially contributed to their inability to obtain timely medical treatment. 4

4. Because of the conflict, many patients in need of immediate medical treatment do not have access
to the requisite medical assistance within Yemen, which may necessitate seeking treatment abroad. For
example, the conflict has resulted in:

(a) Limited medical resources due to the non-payment of salaries and lack of hospital
operational funds;

(b) Closure or destruction of hospitals;

(c) Attacks against hospitals and health care workers;

(d) Prioritized treatment for fighters and war wounded in some hospitals; and

(e) Lack of medical supplies, equipment, and specialists.

5. On one occasion, a team of doctors was cleared by the Saudi Arabia -led coalition to arrive at
Sana’a International Airport to treat the former President of Yemen, 5 but this option is not available for
others seeking medical treatment unavailable in Yemen. Thus, the options for civilians seeking treatment
aboard are currently as follows:

__________________
1
http://www.spa.gov.sa/viewfullstory.php?lang=enandnewsid=1684682#1684682 .
2
A person’s medical condition or access to treatment may be said to be affe cted by the conflict when, for example, a
medical facility on which their treatment depends has been destroyed, when they do not have access to medical
personnel or facilities on which they depend owing to the conflict, or where they do not have access to medicines vital
for their ongoing treatment for reasons related to the conflict. See Commentary to the Common Article 3 of the Geneva
Conventions.
3
See https://www.nrc.no/news/2017/august/yemen-airport-closure-killed-more-people-than-airstrikes/.
4
Confidential sources.
5
https://uk.reuters.com/article/uk-yemen-security-saleh/yemens-ex-president-saleh-stable-after-russian-medics-operate-
idUKKBN1CJ0FS.
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(a) Leave through Sayun, which takes 24 hours by public transport from Sana ’a, or by private
transport at a cost of approximately US$ 200; 6

(b) Leave through Aden, which takes 12 hours by public transport from Sana ’a, or by private
transport at a cost of USD approximately US$ 280 – 350; 7 or

(c) Leave by boat, often using human smuggling and trafficking routes.

6. The fact that many countries have recently imposed stringent visa restrictions on Yemenis also
compounds the difficulties for patients seeking medical treatment abroad.

7. Common Article 3 of the Geneva Convention - which is binding on Saudi Arabia and the other
Saudi-Arabia-led coalition member States authorizing and enforcing the air blockade over Sana ’a -
provides that civilians and other persons who do not take part in hostilities, who are sick or wounded shall,
in all circumstances be protected and cared for. This protection given to the wounded and the sick is
meaningless without access to requisite medical assistance, including medical supplies and medical
personnel. Article 7 of Additional Protocol II further strengthens that right of the wounded an d sick.

8. Under IHRL the obligation to ensure the right to health of individuals is also binding on Saudi
Arabia-led coalition member States. 8 States are legally bound under IHRL to ensure that their policies
create an enabling environment for available and accessible health care for all in the shortest possible time, 9
including allowing patients have access healthcare in other countries. 10

9. The Saudi Arabia-led coalition has not exercised its discretion to impose restrictions and
conditions on travel through the Sana’a International Airport, as may be required by military necessity, 11
while also allowing those requiring immediate treatment abroad the opportunity to do so. Instead it has
exercised a blanket ban since August 2016 on travel to obtain medic al services, except for the temporary
lifting of the ban on selected medical flights immediately following the Sana ’a Funeral Hall air strike and,
more recently, for the flight carrying medical personnel that treated former president Ali Abdullah Saleh
(YEi.003).

10. In this context, the Panel concludes that the complete and unconditional closure of Sana ’a
International Airport to those genuinely seeking immediate medical treatment abroad, particularly those

__________________
6
Sources organizing “medical tourist” visits.
7
Ibid.
8
See for example, the Universal Declaration of Human Rights, Article 25; International Covenant on Civil and Political
Rights (ICCPR), Articles 6 and 12; and International Covenant on Economic, Social and Cultural Rights (ICESCR),
Article 12.
9
World Health Organization (WHO), Right to Health: Crossing barriers to access health in the occupied Palestinian
territory, 2014 - 2015. See also Additional Protocol II, Article 7(2), and ICRC Study on Customary International
Humanitarian Law (2005), Rule 110.
10
Committee on Economic, Cultural, and Social Rights, General Comment No. 14, The right to the highest attainable
standard of health (article 12 of the International Covenant on Economic, Social and Cultural Rights), 11 August 2000,
UN Doc. E/C.12/2000/4. “To comply with their international obligations in relation to article 12, States parties have to
respect the enjoyment of the right to health in other countri es, and to prevent third parties from violating the right in
other countries…”.
11
The Saudi Arabia-led coalition spokesperson stated that "closing Sana'a airport and limiting it to relief efforts came as
a precaution to ensure the safety of all inbound com mercial and cargo flights, due to the Huthi (sic) armed militia's
attempts to smuggle arms into the country. As a result, we have assigned airports in liberated, and safe cities as
alternatives at the request of the Yemeni government. Thus, these precautio nary measured should not be stigmatized as
cause of suffering for Yemeni people”. He added, "should airport management and security be conducted properly,
insuring the safety of all inbound flights and stopping arms smuggling, Joint Forces Command is prepa red to restore
normal flight activity".
http://www.spa.gov.sa/viewfullstory.php?lang=enandnewsid=1655689#1655689 .
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who do not have any other meaningful alternatives, is an infringement of Common Article 3. The WHO
has held that denying access to medical care in some circumstances could constitute a war crime. 12

11. Although the Saudi Arabia-led coalition appears to justify the measures taken in respect of the
Sana’a International Airport by referring to resolution 2216 (2015), 13 there is no provision in that resolution
that supports a complete blockade on commercial flights into Sana ’a International Airport. Additionally,
the Saudi Arabia-led coalition is not currently complying with paragraph 17 of resolution 2216 (2015) on
its reporting requirements. Since the resolution came into effect, the Saudi Arabia -led coalition has only
issued one report to the Committee, which related to ten inspections. 14

III. Conclusion
12. The Panel does not dispute that the Saudi Arabia-led coalition may take such legitimate measures
it deems appropriate, as required under military necessity, to control air traffic into geographical areas
controlled by the Houthi forces. Yet, the Panel finds that:

(a) The Saudi Arabia-led coalition has not demonstrated the military necessity for the closure of
the airport to persons genuinely seeking immediate medical treatment abroad, particularly when
there are no real alternative travel routes; and

(b) That it is the responsibility of the member States of the Saudi Arabia -led coalition, and not
the United Nations, to ensure that the Saudi Arabia-led coalition member States comply with their
obligations under IHL and IHRL.

13. The Panel notes that the Saudi Arabia-led coalition has offered to open the airport under the
supervision of the United Nations; 15 an offer not taken up by the United Nations. 16

III. IHL violations relating to persons seeking protection abroad

14. The Panel investigated five situations relating to six individuals who wished to leave Yemen, on
the basis that there were immediate threats against their life and liberty in Houthi -Saleh controlled areas.
These individuals had all been subjected to arrest, detention, abuse, and/or persecution and other human
rights violations by Houthi-Saleh forces/officials, but feared for their physical safety in Government
controlled territory.

__________________
12
World Health Organization (WHO), Right to health: Crossing barriers to access health in the occupied Palestinian
territory, 2014-2015. United Nations Office of the High Commissioner of Human Rights (OHCHR), Freedom of
Movement: Human rights situation in the Occupied Palestinian Territory, includin g East Jerusalem, Report of the
Secretary-General to the United Nations Human Rights Council, February 2016. OHCHR and WHO examined the issue
on the right of patients to receive treatment abroad when it considered the right of Palestinians to cross the Raf ah border
crossing between the Gaza Strip and Egypt to seek medical treatment. The OHCHR has held that “Any exception (to
freedom of movement) must comply with international law, which means that restrictions are justified only for
imperative reasons of security and only in response to a specific security threat”.
13
http://www.spa.gov.sa/viewfullstory.php?lang=enandnewsid=1655689#1655689 . The Saudi Arabia-led coalition
spokesperson stated in August 2017 that “the coalition command had and is still working to its best efforts to ensure the
safe arrival of all commercial, cargo and relief flights to all Yemeni airports in Sana'a, Aden, Al Hudaydah, Seiyun,
Mukalla and Socotra through issuing proper flight permits for all incoming requests, and assigning Bisha National
Airport for air traffic management in accordance with UNSCR 2216”.
14
A/AC.56/2015/COMM.28 (KSA ref no UN/SC/378) dated 12 June 2015.
15
https://www.nytimes.com/2017/08/10/world/middleeast/saudi -arabia-yemen-houthi-rebels-sana-airport.html and
http://www.spa.gov.sa/viewfullstory.php?lang=enandnewsid=1655689#1655689 .
16
The UN stated that “the parties to the conflict have the responsibility to ensure the protection of civilians and their
access to humanitarian relief, including through the use of airspace and airport ”. See
https://www.reuters.com/article/us-yemen-security-airport/u-n-signals-not-responsible-for-controlling-yemens-main-
airport-idUSKBN1AR22Y.
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14. UNHAS flights do not transport civilians fleeing persecution, 17 compelling individuals fleeing
Houthi-Saleh controlled territory to travel through the South of the country. The risk of arrest and
subsequent disappearance in the south and in Ma’rib, which are increasingly being reported in the south,
compounds fear that individuals traveling between the north and the south can be targeted in those areas
because of their family names, family history, or tribal affiliations.

__________________
17
UN sources.
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CONFIDENTIAL ANNEX NOT FOR PUBLIC DISSEMINATION

Annex 71: Obstructions to the delivery of humanitarian aid

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CONFIDENTIAL ANNEX NOT FOR PUBLIC DISSEMINATION

Annex 72: Obstructions to humanitarian access and the distribution of humanitarian

assistance (2017)

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Annex 73: Full list of abbreviations 1

a/c Aircraft
AED Arab Emirati Dinar
AES Arms and Ammunition Search
a.k.a Also Known As
AGM Air-to-Ground Missile
AIO Iran Aircraft Industries Organization
AIS Automatic Identification System (maritime)
AK Avtomatik Kalishnikov (assault rifle)
AP Amended Protocol
APKWS Advanced Precision Kill Weapon System
AQ Al-Qaida
AQAP Al-Qaida in the Arabian Peninsula
ASL Above Sea Level
ATGM Anti-Tank Guided Missile
ATGW Anti-Tank Guided Weapon
ATO Air Tasking Order
AUAV Armed Unmanned Aerial Vehicle
AXO Abandoned Explosive Ordnance
BAT British American Tobacco
BCP Border Crossing/Control Point
BMP Best Maritime Practices
CA Common Article (to Geneva Conventions of 1949)
CAGE Commercial and Government Entity (Code)
CBD Commercial Bank of Dubai
CBY Central Bank of Yemen
CEP Circular Error Probability
CFD Computational Fluid Dynamics
CHA Coalition Holding Area
CIFOR Civil Forum for Asset Recovery
CIHL Customary International Humanitarian Law
CIHLR Customary IHL Study Rules (ICRC)
CMF Combined Maritime Force
CN Peoples’ Republic of China
CP Checkpoint
CRC Convention on the Rights of Children
DADP Di-Acetone Di-Peroxide
DC Direct Current
DIO Defence Industries Organization (Iran)
DoB Date of Birth
DPRK Democratic People’s Republic of North Korea
DRC Danish Refugee Council
DWT Dead Weight Tonnage (Tonnes)
E East
EGBU Enhanced Guidance Bomb Unit

__________________
1
Including footnotes and annexes.
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EO Explosive Ordnance
ER Extended Range
ER-SRBM Extended Range Short Range Ballistic Missile
ESH Explosive Storehouses
EUC End Use Certificates
F Foreign Investor Stake / Fuel
FAE Fuel Air Explosion
FFR Free Flight Rocket
FFV Fuel Filling Valve (SCUD)
FFDV Fuel Filling and Drainage Valve
FOB Free On Board
F of I Figure of Insensitiveness
FR France
FS French Ship
FV Fishing Vessel
FZC Free Zone Company
g Gravity (9.81m/s)
GBP Great Britain Pounds (sterling)
GBU Guidance Bomb Unit
GC Geneva Conventions
GCC Gulf Cooperation Council
GDP Gross Domestic Product
GE Germany
GGE Group of Governmental Experts (GGE)
GIS Geographical Information System
GLC Global Logistics Cluster
GPC General People’s Congress
GPS Global Positioning System
GT Gross Tonnage
GWT Gross Weight Tonnage
H Height
HE High Explosive
HEAT High Explosive Anti-Tank
HESA Iran Aircraft Manufacturing Industries
HMTD Hexa-Methylene Triperoxide Diamine
HRW Human Rights Watch
HSV High Speed Vessel
IAIO Iranian Aircraft Industries Organization (HESA)
ICC International Criminal Court
ICJ International Court of Justice
ICRC International Committee of the Red Cross
ICU Intensive Care Unit
IDP Internally Displaced Person(s)
IED Improvised Explosive Device
IHL International Humanitarian Law
IHRL International Human Rights Law
IMC International Medical Corps
IMO International Maritime Organization
IMS Inertial Measurement System
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INS Inertial Navigation System

IPO Initial Public Offering
IR Iran
IRFNA Inhibited Red Fuming Nitric Acid
IRGC Iranian Revolutionary Guards Corps
ISIL Islamic State in Iraq and the Levant (Daesh)
ISTAR Intelligence, Surveillance, Targeting and Reconnaissance
IT Italy
JIAT Joint Investigation and Assessment Team (Saudi Arabia-led coalition)
KE Kinetic Energy
KIIC Kamaran Industry and Investment Company
KKIA King Khaled International Airport
km Kilometre(s)
KR Republic of Korea
L Litres Length
LAWS Lethal Autonomous Weapons System
LC Letters of Credit
Li-Ion Lithium Ion
LLC Limited Liability Company
LLI Lloyds List Intelligence
LNG Liquefied Nitrogen Gas
LTTE Liberation Tigers of Tamil Eelam
m Metres
m3 Cubic Metres
MARAD Maritime Administration (US Department of Transport)
MCCB Moulded Case Circuit Breaker
MEKP Methyl Ethyl Ketone Peroxide
MG Machine Gun
mm Millimetre(s)
‘MoPIC’ ministry of planning and international cooperation
MOU Memorandum of Understanding
MRBM Medium Range Ballistic Missile
MSA Mine Safety Appliances Limited (USA)
MSN Manufacturer’s Serial Number
MSR Main Supply Route
MT Mega-Tonne(s) / Merchant Tanker
MV Merchant Vessel
MWMS Moveable Weapon Mount System
N North / Newton(s)
NATO North Atlantic Treaty Organization
NBD National Bank of Dubai
NEQ(C) Net Explosive Quantity (Content)
NFP National Focal Point
NGO Non-Governmental organization
NK Not Known
NL Netherlands
nm Nautical Mile
NO Norway
NRC Norwegian Refugee Council
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NSB National Security Bureau

‘NSB’ Sana’a based national security bureau
NSN NATO Stock Number
O Oxidiser
OCHA Office for Coordination of Humanitarian Affairs (UN)
OFAC Office of Foreign Assets Control (US Treasury)
OFV Oxidiser Filling Valve (SCUD)
OFDV Oxidiser Filling and Drainage Valve
P Private Investor Stake
PDRY People’s Democratic Republic of Yemen
PBIED Person-Borne IED (‘suicide bomber’)
PCB Printed Circuit Board
PIL Pacific International Lines Limited
POE Panel of Experts
PRV Pressure Relief Valve
PSO Political Security Organization
‘PSO’ Sana’a based political security organization
PWA Port Waiting Anchorage
QAR Qatari Riyal
QNB Qatar National Bank
RCIED Radio Controlled Improvised Explosive Device
RCL Recoilless Rifle
RDX Hexogen or Cyclotrimethylenetrinitramine
RPG Rocket Propelled Grenade
RSADF Royal Saudi Air Defence Forces
RSAF Royal Saudi Air Force
RSN Royal Saudi Navy
SAA Small Arms Ammunition
SAM Surface-to-Air Missile
SAR Saudi Riyal
SEMG Somalia and Eritrea Monitoring Group
SBI Shahid Bagheri (Bakeri) Industries (Iran)
SBIG Shahid Bagheri (Bakeri) Industrial Group (Iran)
SGBV Sexual and Gender-Based Violence
SHIG Shahid Hemat Industrial Group (Iran)
SLOC Sea Lines of Communication
SMC Security and military committee (Houthi-Saleh)
SOLAS International Convention for the Safety of Life at Sea
SPC supreme political council
SPM Ships Protection Measures
SRBM Short Range Ballistic Missile
SRC supreme revolutionary council
STC Southern Transitional Council
STCO Shaher Trading Company Limited
SVIED Suicide Vehicle IED
TAN Tangent
TATP Tri-Acetone Tri-Peroxide
TBC To Be Confirmed
TCBM Transparency and Confidence Building Measures
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TCC Trilateral Coordination Committee

TFTC Terrorist Financing Target Centre
TNT Tri-Nitro Toluene
TR Turkey
UAE United Arab Emirates
UAV Unmanned Aerial Vehicle
UK United Kingdom
UN United Nations
UNCT UN Country Team
UNESCO UN Educational, Scientific and Cultural Organization
UNHAS UN Humanitarian Air Service
UNHCR UN High Commission for Refugees
UNICEF United Nations Children’s Fund
UNVIM UN Verification and Inspection Mechanism
USA United States of America
USAF United States Air Force
USDA United States Department of Agriculture
USN United States Navy
USS United States Ship
US$ United States Dollar(s)
VHF Very High Frequency
VLCC Very Large Crude Carrier
UXO Unexploded Ordnance
W Width
WBIED Water-Borne Improvised Explosive Device
WFP World Food Programme
WSS Weapon Storage Sites
YAF Yemen Armed Forces
‘YCA’ Sana’a based Yemen customs authority
YEITI Yemen Extractive Industries Transparency Initiatives
YER Yemeni Riyal
YPC Yemen Petroleum Company

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