Tag Archives: UNPoA

Reviewing for the Purpose of Strengthening the PoA on Small Arms

23 Mar

After a week-long session of the Prep Com for the August Review Conference on the Programme of Action (PoA) on small arms discussing thematic issues such as international assistance and cooperation, follow-up mechanisms, and the International Tracing Instrument (ITI), member states must now channel their efforts towards concrete preparations for a successful second Rev Con in just over five months time. A key discussion among member states on Thursday was determining what exactly the mandate of the forthcoming Rev Con stipulates—to review progress made on the implementation of the PoA or to also strengthen its implementation in addition to reviewing it. The discussion over what on the surface may seem to be a small difference in wording is critical to the long-term success of the PoA and, ultimately, combating the deadly effects of the illicit trade in small arms and light weapons (SALWs).  This distinction is also crucial to the formal small arms review process at large. Reviewing and strengthening cannot be decoupled activities as they both, in tandem, contribute to controlling the spread of illicit SALWs.

The discussion initiated around wording contained in the introductory paragraph of the Draft Report describing the mandate of the forthcoming Rev Con. The discussion began when the representative of Algeria stated that the mandate of the Prep Com does not explicitly include a reference to strengthening or enhancing the PoA and, therefore, member states should only consider the strengthening task if the mandate explicitly indicates this function. A solution was found by including the direct quotation from General Assembly resolution 66/47, which states: “…at the second review conference, to review progress made in the implementation of the Programme of Action, and, subject to the agenda of the conference to be agreed by the preparatory committee, encourages them to explore ways to strengthen its implementation…”

Although a way was found to move forward on the Draft Report, the larger question of ‘reviewing’ versus ‘strengthening’ deserves more attention.  Concerns by members states over expanding the PoA, such as seeking coverage for ammunition or to make it a legally-binding instrument, is a separate and potentially larger and more animated conversation. Furthermore, reviewing implementation of the PoA is not an end in and of itself and, therefore, cannot be conducted in a vacuum. The review process must serve a larger goal—the goal of strengthening implementation of the PoA’s provisions in national contexts so that all member states, in the context of their individual national constraints and unique needs, can more robustly prevent, combat, and eradicate the illicit trade in SALWs.  As was stated many times by delegations over the course of the week, particularly during the debate on international assistance and cooperation, the Rev Con and relevant meetings (including possible future MGEs) should serve as forums to review PoA implementation in order to better exchange information and views on best practices and lessons learned to strengthen its implementation.

The concern of some states that the PoA will ‘overstep’ its bounds and become a different type of instrument, whether due to its shifting legal status or its expanded scope, is a valid one that merits a robust and productive discussion among diplomats. Although there were calls this week by some delegations to have ammunition included in the PoA and ITI, there was clearly no consensus on this issue. Moreover, this Prep Com was not necessarily the appropriate forum for vetting such proposals given the time constraints and the distinct mandate to prepare the agenda for the August Rev Con. As such, as it stands now, the work of the upcoming Rev Con must focus on improving and strengthening what already exists in the PoA and ITI—a strong set of provisions and comprehensive frameworks at the national, regional, and international levels for eradicating the illicit trade in SALWs.

The hope is that the PoA would at some point become a legally-binding instrument or that it might also include ammunition such that the multi-dimensional, disastrous consequences of the illicit trade in SALWs would be more effectively prevented. Advocating for an expansion of the PoA is important and should not be overlooked in the Rev Con. Nonetheless, this ‘separate, but equal’ debate should not cloud the purpose and mandate of the August Rev Con, which is to review progress made in implementing the PoA in order to identify ways in which member states can strengthen their national implementation practices and better prevent the illicit trade in SALWs.

–Katherine Prizeman

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A Review of the New SG Report on the Support Mission in Libya: Urgent Security Challenges

8 Mar

On 1 March 2012, the Secretary-General issued a new report on the United Nations Support Mission in Libya (UNSMIL) detailing the major developments in the country since the release of the previous report from 22 November 2011 as well as the activities undertaken by the mission under its mandate from Security Council resolutions 2009, 2017, and 2022. The report outlines the major challenges facing Libya in its political transition as well as recommendations for the future for both UNSMIL and Libyan authorities.

The report offers a recount of the political developments in the country from the announcement of a new interim government by the National Transitional Council (TNC) on 22 November 2011 to the intermittent struggles with the revolutionary ‘brigades’ in Tripoli and beyond. It is clear that the security situation remains highly precarious. The issue of the call for semi-autonomy by local tribal leaders in the oil-rich eastern region has also recently come to the forefront for the TNC among other security sector challenges such as proliferation of weapons, trans-border challenges posed from porous movement across neighboring borders with Chad, Niger, and Mali among others, skirmishes between rival brigades, and attacks against internally-displaced persons (IDPs). Welcome references in the SG’s description of the increasingly active political discourses are youth and women who, according to the report, represent groups that “seek to transform their role from freedom fighters to nation-builders through engagement in making decisions on Libya’s political, economic and social future.”

Among a variety of mandated-activities, UNSMIL is focused primarily on providing support for the upcoming electoral process; protecting human rights, transitional justice and rule of law, in particular addressing the detention of conflict-related detainees and interrogations; securing public security including border security, landmines and explosive remnants of war, and small arms proliferation; and supporting socio-economic recovery in coordination with other international assistance. The Secretary-General has asked for the Security Council to extend the mandate of UNSMIL for another 12 months as an integrated political  mission to help ensure the best possible transition in the post-Qadaffi era. The SG has highlighted the importance of maintaining the Libya mission as a “relatively small special political mission, joining forces with the work of agencies, funds and programmes,” as such a model thereby limits the budgetary requirements.

Most especially in light of the upcoming Preparatory Committee for the Programme of Action on small arms in just two weeks, it is important to underscore the specific references to arms proliferation in the SG’s report. As has been referenced on this blog before, the issue of uncontrolled weapons across the whole of Libya has been a significant challenge in the post-revolution period as Libyans seek to secure their nation and embrace democracy in an extremely tenuous security environment. The report explains that visits to 123 weapons storage sites have been conducted jointly by Libyan officials and international counterparts such as the UN Mine Action Service and have revealed a total of 5,000 registered man-portable air defence systems (MANPADS) and their components, although the fear of missing MANPADS is still a viable concern. Most alarming is the lack of detailed records of weapons in pre-conflict stocks and weapons used and transferred during the conflict. As such, currently there is exploration of a registration system of weapons– including MANPADS– as well as ammunition and its storage and management. For this type of system to be successfully implemented, it is clear that all those that manage and possess weapons participate, including those tribal brigades that are still engaged in their own internal power struggles. The issue of landmines and other explosive remnants of war has also been addressed by the Joint Mine Action Coordination Team, although the operation has struggled due to a lack of funding. A total of 126,155 mines and explosive weapons have been cleared as of the end of January 2012. The Ministry of Defence has also established the Libyan Centre for Mine Action with this mandate.

The primary challenge of the arms situation in Libya is the lack of transparency and access to the stockpiles controlled by the rival brigades that are still very much a factor in the difficult political situation. Therefore, it seems the most urgent need related to the brigade fighters and their large number of unaccounted for weapons is the integration and unification of these revolutionary fighters into national security institutions. The first step must be adequate demobilization in solid coordination with halting small arms proliferation through a transparent registration system of weapons in circulation. Obviously this will be no easy task. One of the most difficult challenges of small arms is just that– they are small, mobile, and easily collected, traded, and hidden. The same cannot be said for other types of conventional weapons such as tanks, helicopters, or missile systems. Many of these revolutionary fighters are unwilling to forego their weapons due to the weak security sector, which, in turn, remains weak in part due to the wide circulation and hoarding of weapons. It is a dangerous and vicious cycle that must be broken. The Libyan authorities themselves have recognized that their foremost challenge is to address the wide circulation of weapons and the armed brigades fighting for control of territory across the country. Furthermore, these weapons are undoubtedly finding their way across borders fueling conflict and violence in neighboring states such as Sudan wrought with its own set of very difficult internal conflicts.

Libya has a difficult road ahead as it transitions to a new government and seeks to integrate a country fraught with regional and tribal divisions. To do so will require a stable security situation without which the transition will be impossible and such stability in the security sector requires control of arms proliferation.

–Katherine Prizeman

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