Panel of Experts on Yemen
UN Security Council Panel of Experts: Yemen Faces the Most Serious Humanitarian Crisis, and Houthis Refuse Dialogue
The Panel of Experts on Yemen was honored to submit its Final Report (S/2025/650), annexed to the letter dated October 15, 2025, to the President of the Security Council, covering the period from August 1, 2024, to July 31, 2025.
Its summary stated that the Houthis rejected all calls for dialogue with the Yemeni government, escalated their hostile actions, and continued to recruit children and violate the arms embargo resolution.
Here is a summary of the report’s main points, an analysis of its future implications, and its key new findings:
First: Summary of the Report’s Findings
The report concluded that the situation in Yemen is deteriorating, with the country facing one of the most serious humanitarian crises in the world. It noted that local developments are closely linked to regional and international dynamics, especially the ongoing conflict in Gaza.
Regional Dynamics and Maritime Security:
- Houthi Threat: The Houthis continue to pose a significant threat to peace, security, and stability in Yemen and the region.
- Red Sea Attacks: Houthi attacks on vessels in the Red Sea and the Gulf of Aden have undermined the security of navigation and the freedom of international trade. The Houthis launched over 1,679 attacks since November 2023.
- Strike Responses: The United States and Israel carried out intensive airstrikes on Houthi sites and infrastructure. Despite this, the Houthis maintained their missile capabilities and their ability to launch attacks against Israel and ships.
- Economic Repercussions: The attacks caused a 70% decline in traffic through the Suez Canal, and the average cost of container shipping rose from $1,660 in 2023 to about $6,000 in 2024.
Local Dynamics and Internal Violations:
- Peace Stalemate: The Houthis sought to consolidate their control and rejected any serious dialogue with the Government of Yemen, leading to a stalemate in the peace process.
- Human Rights Violations: Violations of IHL and IHRL continue to be widespread and systematic, including indiscriminate attacks, arbitrary detention, conflict-related sexual violence (with the participation of the Zainabiyat), and child recruitment.
- Economic Situation: The economic crisis worsened, and the exchange rate of the Yemeni Riyal in government-controlled areas dropped to over 2,800 Riyals per US dollar in the black market.
Sanctions Regime and Houthi Financing:
- Arms Embargo Violations: Analysis of smuggling revealed a continuous violation of the arms embargo. The Government of Yemen seized more than 750 tons of weapons and illicit materials in June 2025.
- Financing: The implementation of financial sanctions has been of limited effectiveness, as the Houthis possess significant sources of income from taxation, illegal fees, company confiscation, and smuggling. They maintain complete control over the telecommunications sector, which funds their military activities.
Second: Key New Points in the Letter/Report
The report contained points that indicate a qualitative escalation in the conflict and violations during the reporting period:
- Qualitative Escalation in Maritime Attacks: The occurrence of two major maritime attacks in early July 2025, where two Liberian-flagged commercial vessels were targeted and sunk, resulting in casualties, injuries, and the detention of 10 crew members.
- Fourth Phase of the Naval Blockade: The Houthi announcement of the “Fourth Phase of the Naval Blockade” on July 28, 2025, which targets any vessel owned by companies dealing with Israeli ports, regardless of its nationality or destination.
- Destruction of Civilian Aircraft: Israel carried out airstrikes on Sana’a International Airport, leading to the destruction of three civilian aircraft belonging to Yemenia Airways and Felix Airways, followed by the destruction of the fourth remaining aircraft, leaving the company with no operational planes in Sana’a.
- Death of a UN Staff Member in Detention: Documentation of the death of a World Food Programme employee on February 10, 2025, while in Houthi custody.
- “Internal Front” Strategy: A detailed description of the Houthi strategy aimed at restricting civic space, suppressing dissent, and restructuring institutions to facilitate long-term ideological indoctrination.
- Houthi Military Resilience: Noting that the Houthis “demonstrated resilience” and continued to launch counter-attacks, despite the escalating campaign by the US and UK (Operation Prosperity Guardian), which included over 1,000 coordinated strikes.
