to that area. The United States fully supported the creation of UNIFIL, and the United States regards the strengthening of UNIFIL today as critical in the effort to establish order in the area. The attacks on UNIFIL headquarters and the indiscriminate attacks and even murders of individual soldiers are abhorrent to the entire international community and can neither be condoned nor allowed to continue.

At the same time, it was the purpose of resolution 425 (1978) that southern Lebanon should not remain a staging base for attacks across the Lebanese-Israeli borders against innocent civilians in northern Israel. In the recent attack on Misgav Am where babies were held hostage, harmed and killed, those attacks reached the depths of inhumanity. In this situation the United States regards this draft resolution as an unbalanced and inadequate response to the problem. The important objective is to agree on practical measures to improve the conditions for UNIFIL's operations and to ensure full co-operation with UNIFIL.

At the same time, the draft resolution does not directly acknowledge the fact of cross-border terrorism against Israel, which is one of the essential elements of the threat to peace in that area. Tragedies like that at Misgav Am are not referred to even by implication, and therefore the United States will abstain.

The policy of the United States in this area has been guided by three principles: that all parties must respect Lebanon's territorial integrity; that the authority of the Government of Lebanon must be restored up to the international border; and that a cease-fire should be respected in all quarters, including all attacks against Israel from Lebanese territory.

To that end, in March 1978 the United States strongly supported the establishment of UNIFIL. Since then, in close co-operation with the Government of Lebanon, the Security Council and the Secretary-General, we have worked intensively to assist UNIFIL in carrying out its mandate. As the Secretary-General has reported to this Council, UNIFIL is now confronted with a grave challenge to its authority. Indeed, the existence of the Force may well be at stake.

In recent weeks, United Nations personnel, both the men of UNIFIL and the unarmed military observers of the United Nations Truce Supervision Organization (UNTSO), have been subjected to attacks from militias operating in the border area. In recent weeks, those attacks have increased in intensity. A member of the Fiji battalion and members of the Irish battalions have been killed, and on 12 April UNIFIL headquarters and the hospital at Naqoura were heavily shelled by militia artillery. This followed a succession of attacks, fully catalogued by the Secretary-General, by militia forces against UNIFIL and UNTSO personnel, against UNTSO positions and vehicles. These attacks must be brought to an end, once and for all.

At the same time, UNIFIL faces a grave challenge from another quarter. UNIFIL's reports indicate that there has been an increasing number of attempts by Palestinian and other elements to infiltrate into the UNIFIL area of operations. This, too, represents an unacceptable threat to UNIFIL and to the authority of this Council.

It is also essential that there be an end to the use of Lebanese territory as a base for attacks against Israel. The United States shares with the people of Israel the sense of shock and outrage over the attack at Misgav Am. No objective can justify violence. We condemn such acts, and this Council should condemn that act as well. We-and, we are confident, the other members of this Council-share Israel's desire for peace on its northern border. We agree that the best way to achieve this important objective is to bring about a restoration of Lebanese authority in south Lebanon. One of the main reasons for UNIFIL's presence is to bring about a cessation of all attacks across the Israeli-Lebanese border from any quarter whatsoever. Israel itself can contribute to the achievement of these objectives by co-operating fully with UNIFIL.

In this connexion, it is imperative that UNIFIL be able to move freely without hindrance in southern Lebanon in order to carry out the important duties with which it has been charged. All parties must support UNIFIL in carrying out its mission, UNIFIL must not be frustrated by the illegal militia forces. While UNIFIL faces many challenges, the most serious threat of all comes from the militias. If left unchecked, their behaviour will cause still more needless bloodshed and will threaten UNIFIL's continued ability to carry out its mandate. This, in turn, will divert UNIFIL'S attention away from the efforts to deal with illegal infiltration into UNIFIL's area of operations and across the international frontier and, ultimately, from UNIFIL's effort to assist the Government of Lebanon in the restoration of its authority.

As the Secretary-General has reported, UNIFIL's freedom of movement has been severely curtailed by the closure of roads in the border zone controlled by the militias, and thus UNIFIL's headquarters has been isolated from the troops under its command. Helicopters used by UNIFIL in the enclave to evacuate wounded personnel have been damaged. The increasingly harassed observation posts in the border area have been cut off from outside communications.

The United States is prepared, in conjunction with the SecretaryGeneral, the nations that have contributed troops to UNIFIL and with other concerned nations and members of the Council, to explore how UNIFIL can be strengthened so as to enable it to defend itself effectively when it is attacked. We will exert every effort to use our influence to see that those who attack UNIFIL and UNTSO personnel are brought under control.

My Government would also like Council members to consider whether a high-level meeting of some of the principal parties would be useful and productive, perhaps under the auspices of the Israel-Lebanon Mixed Armistice Commission. Such a meeting of interested parties under those auspices or under the chairmanship of the United Nations might offer a means of resolving some of the current difficulties.

As another possibility, members of the Council might wish to consider asking the Secretary-General to work closely with a commission composed of States contributing to UNIFIL to discuss and formulate new ways to help to ensure the security of Lebanese inhabitants of that region and forestall acts of violence across the border, assisting UNIFIL in fulfilling its mandate. Members of

such a commission might include, in addition to representatives of the troop-contributing States, third States which have so far not involved themselves directly in the southern Lebanon situation except by supporting the peace-keeping responsibilities of the United Nations. Any such party would have to have a mandate broader than one of mere fact-finding. It should be charged with the responsibility of actively seeking long-range solutions to the serious threat to the peace which the unresolved situation in the southern Lebanon border area presents. It should come up with concrete proposals which ultimately might be presented to the Council and to other concerned parties.

U.N. Doc. S/PV 2218, Apr. 24, 1980, pp. 28-34/35.
S/RES 467 (1980) reads, in part:

(footnotes omitted)

The Security Council,

1. Reaffirms its determination to implement the above-mentioned resolutions, particularly Resolutions 425 (1978), 426 (1978) and 459 (1979), in the totality of the area of operation assigned to the United Nations Interim Force in Lebanon, up to the internationally recognized boundaries;

2. Condemns . . . and, in particular, strongly deplores:

(a) Any violation of Lebanese sovereignty and territorial integrity;

(b) The military intervention of Israel in Lebanon;

(c) All acts of violence in violation of the General Armistice Agreement between Israel and Lebanon;

(d) Provision of military assistance to the so-called de facto forces;

(e) All acts of interference with the United Nations Truce Supervision Organization;

(f) All acts of hostility against the Force and in or through its area of operation as inconsistent with Security Council resolutions;

(g) All obstructions of the ability of the Force to confirm the complete withdrawal of Israeli forces from Lebanon, to supervise the cessation of hostilities, to ensure the peaceful character of the area of operation, to control movement and to take measures deemed necessary to ensure the effective restoration of the sovereignty of Lebanon;

(h) Acts that have led to loss of life and physical injuries among the personnel of the Force and of the United Nations Truce Supervision Organization, their harassment and abuse, the disruption of communication, as well as the destruction of property and material;

8. Requests the Secretary-General to convene a meeting, at an appropriate level, of the Israel-Lebanon Mixed Armistice Commission to agree on precise recommendations and further to reactivate the General Armistice Agreement conducive to the restoration of the sovereignty of Lebanon over all its territory up to the internationally recognized boundaries;

Resolutions and Decisions of the Security Council, 1980, Security Council Off. Rec., 35th year (S/INF/36) (1981), p. 7.

President Carter subsequently reported to the Congress:

UNIFIL and the Situation in Southern Lebanon

During March and April, the UN Interim Force in Lebanon, UNIFIL, was subjected to a series of attacks from militia elements in the area adjacent to the

Israeli-Lebanese border. Members of the Fiji battalion, the Nigerian battalion, and two members of the Irish battalion were killed as a result of actions by militia elements. The unarmed military observers of the UN Truce Supervision Organization (UNTSO) operating under the operational control of UNIFIL were subjected to harassment, including threats against their lives and seizure of their equipment. On March 19, in response to incidents involving attacks on UNIFIL by militia elements, the Security Council, in a statement read by the Council President, warned those responsible and called for the immediate release of Lebanese military personnel and other persons held by the so-called de facto forces. On April 11, SecretaryGeneral Waldheim made a Special Report to the Council in which he reviewed the series of violent incidents which had occurred involving, in particular, harassment of unarmed UN observers from UNTSO. He also noted the attack on the Israeli Kibbutz of Misgav Am on the night of April 6-7, in which 3 Israelis were killed and 16 others wounded, and urged again that all parties cooperate fully with UNIFIL in carrying out its mandate. On April 12, UNIFIL headquarters in Naqurah and the UN Field Hospital at Naqurah were subjected to heavy shelling by militia elements, and a succession of attacks against UNIFIL and UNTSO personnel followed. In response to these developments, the Government of Lebanon requested an urgent meeting of the Security Council. . . .

On June 17, the Council met to consider the report of the Secretary-General on UNIFIL in which he noted that during the period the most serious problems faced by UNIFIL had come from the de facto forces. Confrontations between UNIFIL and these forces had occasioned the death of UNIFIL soldiers, including the murder of two soldiers. He noted that the de facto forces in question were dependent on Israel for support. The Secretary-General also pointed out that while the leadership of the PLO had renewed its assurances of cooperation with UNIFIL, the Force continued to be subjected to infiltration attempts by armed elements, despite UNIFIL'S attempts to prevent and resist such infiltration attempts. He suggested that the main road to full implementation of the UNIFIL mandate set forth in Resolution 425 (1978) was through political and diplomatic efforts, and he underlined his conviction that UNIFIL was providing an indispensable contribution to peace, not only in Lebanon but in the Middle East as a whole, and recommended that the Security Council renew the mandate of the Force.

On the same day, the Security Council adopted a resolution renewing the UNIFIL mandate for a 6-month period by a vote of 12 (U.S.) to 0, with 2 (U.S.S.R., German Democratic Republic) abstentions, with China not participating. (Resolution 474 (1980).) The resolution condemned acts of violence against UNIFIL, and, inter alia, asked the Secretary-General to continue his efforts to convene a meeting of the Israel-Lebanon Mixed Armistice Commission. Speaking for the United States, Ambassador Petree stated that UNIFIL continued to make an indispensable contribution to peace. He suggested that the Council should not allow impatience over the problems faced by UNIFIL to obscure its real achievements and essential role. Noting that both militia forces in the border area and Palestinian and Lebanese elements were guilty of interference with UNIFIL, he indicated that those guilty of such actions bore a heavy responsibility and would do well to reflect on the consequences of such lawless behavior. He said that the United States stood ready to assist the Secretary-General in his efforts to convene a meeting of ILMAC.

On December 12, the Secretary-General issued his report on UNIFIL during the period June 13-December 11. He noted that the de facto forces supported by Israel continued to harass UNIFIL personnel and prevent the full deployment of the Force, and indicated that "While the Israeli authorities have assisted UNIFIL in resolving certain specific problems, they have not extended to the Force the degree of cooperation it requires in other respects, citing overriding considerations of national security." He noted that infiltration attempts by armed elements continued, despite assurances of cooperation with UNIFIL by the PLO leadership. He pointed out that through the efforts of the Chief of Staff of the UN Truce Supervision Organization (UNTSO) a meeting of the ILMAC had been convened on December 1, and indicated that the Chief of Staff of UNTSO would continue to try to arrange another such meeting in the near future. He recommended that the Security Council renew the UNIFIL mandate for an additional 6 months.

On December 17, the Security Council adopted a resolution by a vote of 12 (U.S.) to 0, with 2 (U.S.S.R., German Democratic Republic) abstentions, with China not participating. (Resolution 483 (1980).) The resolution extended the UNIFIL man

date until June 19, 1981, commended the Secretary-General for his efforts to reactivate ILMAC, expressed support for the Lebanese Government in its efforts to strengthen its authority, and reaffirmed the Council's determination to examine practical ways and means to secure the full implementation of Resolution 425 (1978).

United States Participation in the UN: Report by the President to the Congress for the Year 1980 (1982), pp. 10-12.

Secretary-General Waldheim's Special Report to the Security Council on the incidents occurring in, and adjacent to, UNIFIL's area of operation during April 1980 may be found at U.N. Doc. S/13888, dated Apr. 11, 1980, Corr. 1, Apr. 14, 1980, and Add. 1, dated Apr. 16, 1980, Add. 2, dated Apr. 18, 1980, and Add. 3, dated Apr. 18, 1980. His report on UNIFIL for the period from Dec. 11, 1979 to June 12, 1980 may be found at U.N. Doc. S/13994, dated June 12, 1980, and for the period from June 13 to Dec. 11, 1980, at U.N. Doc. S/14295, dated Dec. 12, 1980.

Regional Peacekeeping

Surveillance and Verification Activities-The Sinai

In a letter to the Congress, dated April 16, 1980, President Carter transmitted a (ninth) report of the activities of the United States Sinai Support Mission, as required by section 4 of Public Law 94-110, October 13, 1975, 89 Stat. 572, 22 U.S.C. 2441 nt (1976); 2348 nt (1982).

The report, covering the six-month period ending April 1, 1980, included deactivation of the early-warning system monitoring the approaches to the Giddi and Mitla passes that the Sinai Field Mission, the Support Mission's overseas arm, had operated as an "integral component" of the 1975 Sinai II Disengagement Agreement between Egypt and Israel (see, post).

The ninth report of the Sinai Support Mission also included the assumption of a new mandate by the Sinai Field Mission: verification of force levels and armaments in that part of the Sinai from which Israel had withdrawn, including on-site inspection of Egyptian and Israeli military installations within designated zones in the Sinai, during the period between completion of interim Israeli withdrawal (January 25, 1980) and completion of final Israeli withdrawal (April 25, 1982). This responsibility had originally been envisaged for United Nations forces in Article III of the Appendix to Annex I to the 1979 Treaty of Peace between Egypt and Israel. Due to Soviet opposition to conclusion of the Treaty of Peace between Egypt and Israel and to use of the United Nations Emergency Force (UNEF) to implement the Treaty, substitution of the Sinai Field Mission was agreed upon in trilateral talks between Secretary of State Vance, Israeli Foreign Minister Moshe Dayan, and Egyptian Defense Minister Kamal Hassan Ali, held at Washington, September 18-19, 1979.

President Carter's letter transmitting to the Congress the ninth report of the U.S. Sinai Support Mission may be found at Public Papers of the Presidents of the United