Towards a global small arms "programme of action".

The small arms problem will not be effectively addressed without sustained attention to the conditions that generate the demand for weapons.

Ernie Regehr represented Project Ploughshares at the United Nations small arms Preparatory Committee (PrepCom) session held at UN headquarters in New York, January 8-19, 2001, where he was also part of a two-person delegation, with Anglican Bishop Dinis Sengulane of Mozambique, representing the World Council of Churches Commission on International Affairs.

This second small arms PrepCom (with one more to be held in March) made some unexpected progress toward the development of a constructive Programme of Action to be approved at the UN Conference on The Illicit Trade in Small Arms and Light Weapons in All Its Aspects in July 2001. The Committee Chair tabled a draft document for discussion and debate, and the churches and the NGO community, prominently present through the International Action Network on Small Arms (IANSA), were pleasantly surprised by the ambitious and comprehensive scope of the draft.

The document called for action "at the national, regional and global levels," acknowledging that "regional efforts, by their very nature, do not address the global nature of the sources of small arms and light weapons, and the increasingly transnational networks of brokers, dealers, financiers and transporters."

It affirmed the importance of national controls on small arms and light weapons, as well the need for controls on their international transfer. The draft supported a number of technical measures related to international standards for marking and tracing weapons, as well as record-keeping and effective controls over government stockpiles. Provisions for the destruction of surplus and recovered illicit weapons were also included, as well as specific calls on the international community to cooperate in law-enforcement measures to prevent illicit trafficking (the main focus of the conference). It called on the international community to provide concrete assistance to governments in heavily gun-affected regions to carry out the programs in the proposed plan of action.

While the NGOs called for the document to be strengthened and expanded in a number of areas, it was generally well-received, but the debate on the document soon made it clear that much of what was in the first draft would not remain in the final document without a great deal of effort.

A central point of disagreement was and remains the question of the scope. Some countries, such as the United States, China, and India, argued in varying degrees that the UN should focus exclusively on addressing the illegal trade, by concentrating on measures to improve law-enforcement cooperation and capacity, and thus avoid any effort to establish global standards regarding legal transfers and national gun control legislation. Others, including Canada, most European states and sub-Sahara Africa (and supported by the churches and the IANSA NGOs), argued for a much more comprehensive approach, saying that in order to control illicit trafficking there must be clarity on and international standards for the regulation of legal possession and transfer of small arms.

The states of sub-Sahara Africa have played a constructive role in the process leading to the July conference. The Organization of African Unity (OAU), meeting in Bamako, Mali last December, issued a broad declaration, based in part on a similar declaration by East African states in Nairobi in November 2000, calling for urgent and concerted international action. African states speak to the issue with a high level of authenticity for, even though the problem is global, it is especially manifest in Africa. The many internal conflicts in Africa are fought with revolvers, assault rifles, machine guns, grenade launchers, and other weapons that are easily carried and concealed, even by children. When civil wars end, large numbers of guns remain for people with grievances to use against each other, and as a result, crime rates have soared and cities like Nairobi and Johannesburg have become extraordinarily insecure.

The churches through the World Council of Churches (WCC) are pressing the conference to recognize and act on the human significance of damage done by uncontrolled small arms and light weapons. As Bishop Sengulane emphasized in meetings with various delegates, the sad truth in Mozambique is that while they kill only one person at a time, "small arms are doing big harm." He pointed out that people in his country have not only read news reports or pondered statistics, but have suffered the deaths of their parents and their sons and daughters because of the uncontrolled presence of small arms.

In the WCC's talks with delegation officials, UN staff, and representatives of other NGOs, Mr. Sengulane also reported on a Mozambican churches' project called "swords into ploughshares." After his country's long armed struggle to win independence came years of internal conflict between government forces and Renamo rebels. And when the large-scale fighting finally ended, huge numbers of guns remained. With financing from Canada, Germany, Japan, and other countries, Mozambique's churches gave farm tools or sewing machines to people who turned in guns, thus going beyond simply talking to actually doing disarmament. "We collected over 100,000 weapons," Sengulane reports. Police and military officials made the guns unusable, and in some cases the guns themselves were turned into artistic works (an exhibition of this "gun art" toured Canada in 2000). "Why can't this be done globally?" he asks.

Bishop Sengulane has also been responsible for the Anglican church in Angola since 1990. He hopes that when a settlement is reached between the contending forces there, a "swords into ploughshares" program similar to the one in Mozambique could be undertaken.

NGOs have also emphasized that the small arms problem will not be effectively addressed without sustained attention to the political, social, and economic conditions that tend to generate demand for weapons. The draft program of action provided some recognition of the need to address both supply and demand dimensions of the small arms question, while the Nairobi and Bamako declarations explicitly insisted that the combat of illicit trafficking requires the pursuit of positive policies and measures to create social, economic, and political environments that are conducive to reducing the resort to arms by individuals and communities. NGOs at the PrepCom urged delegates to include in the program of action an explicit endorsement of the African declaration that, to address the problem of the illicit trade in small arms and light weapons in a comprehensive, integrated, and sustainable manner, it is necessary to reduce the demand for weapons through measures that promote the strengthening of democracy, respect for human rights, the rule of law and good governance, as well as economic recovery and growth. The NGOs also called for action on additional related measures such as reform of the security sector and programs to reverse cultures of violence and promote cultures of peace.

Whatever the results of the July Conference, it is clear that it will only be an early stage of the global struggle to come to terms with the small arms crisis. The churches and the NGOs want the UN conference, at a minimum, to issue a declaration acknowledging the urgency of the problem, to adopt a plan of action that gives credence to that declaratory statement, and then to provide for an ongoing process to monitor the progress, or lack of it, on implementation. The level of resources devoted to implementing the program of action will be critical.

(This report draws in part on a February 26, 2001 press release from the World Council of Churches.)

Small arms action at the UN

Arghavan Gerami

The global problem of the proliferation and misuse of small arms and light weapons will benefit from focused international attention at the July 2001 UN Conference on the Illicit Trade in Small Arms and Light Weapons in All Its Aspects. The preparatory process has included the formal work of the Preparatory Committee, a broad range of regional and sub-regional governmental meetings, as well as a large number of workshops, seminars, and conferences organized by non-governmental organizations (in March Project Ploughshares hosted an international gathering of NGOs, experts, and officials to address demand-side elements of the small arms problem). The Fall 2000 session of the UN General Assembly also passed several resolutions on small arms and light weapons.

UN concern and attention regarding the proliferation, misuse, and excessive accumulation of small arms and light weapons have heightened over the last decade, in part as the result of the organization's regularly having to face the consequences of conflicts fought mainly with small arms. UN action has been shaped by two Panels of Governmental Experts on Small Arms, one reporting in 1997 [A/52/298], and the second in 1999 [A/54/258].

With the preparations for the 2001 UN Conference on the Illicit Trade in Small Arms and Light Weapons in All Its Aspects underway, the UN General Assembly passed four "small arms" resolutions (all adopted without votes) in its October/November session: one primarily to set the time and place for the Conference, two resolutions on assistance to States for small arms action, and a fourth on lessons learned.

The first of this year's small arms resolutions [A/C. 1 /55/L.28/Rev. 1] confirms New York as the new site for the 2001 Conference (9-20 July 2001) and sets the third Preparatory Committee session (PrepCom) for 19-30 March 2001, also in New York. Earlier Kenya had removed its offer to host the third PrepCom and Switzerland had withdrawn its offer to host the Conference.

The second resolution [A/C. 1 /L. 11/Rev. 1] is on "Assistance to States for Curbing the Illicit Traffic in Small Arms and Collecting Them." Supported by Mali, the resolution sets out to encourage support to West African countries who are part of the 1998 Moratorium on the Importation, Exportation and Manufacture of Small Arms and Light Weapons in West Africa and to encourage states in the region to create commissions against the proliferation of small arms (Hill 2000, p. 4). In the resolution, the General Assembly

"Encourages the setting up in the countries in the saharo-Sahelian subregion of national commissions against the proliferation of small arms, and invites the international community to support as far as possible the smooth functioning of the national commissions where they have been set up ... and urges the international community to give its support to the implementation of the moratorium" (emphasis added).

The third resolution, on "Consolidation of Peace Through Practical Disarmament Measures" [A/C. 1 /L. 15] "promotes the guidelines established on practical disarmament by the Disarmament Commission and encourages the study of the lessons learned by interested states and the promotion of other projects within affected states" (Hill 2000, p. 4). In the resolution, the General Assembly.

"... encourages Member States, as well as regional arrangements and agencies, to lend their support to the implementation of recommendations ..." in the Secretary-General's report on the consolidation of peace through practical disarmament measures;

"Encourages Member States, including the group of interested States, to lend their support to the Secretary-General in responding to requests by Member States to collect and destroy small arms and light weapons in post-conflict situations" (emphasis added).

The fourth resolution, led by South Africa, is on "Illicit Traffic in Small Arms and Light Weapons" [A/C.1/L.38]. It encourages measures aimed at reducing the illicit trade and the provision of assistance by states to other states for reducing this trade. This resolution also requires the UN Secretariat "to monitor the issue and provide assistance in response to requests from states" (Hill 2000, p. 4). The General Assembly.

"Encourages states to promote regional and sub-regional initiatives and requests the Secretary-General, within available financial resources, and also States in a position to do so, to assist States taking such initiatives to address the illicit trafficking in small arms and light weapons in affected regions....

"Invites States in a position to do so to continue to provide assistance, bilaterally, regionally and through multilateral channels, such as the United Nations, in support of measures associated with combating illicit trafficking in small arms and light weapons, including assistance in response to requests by States to collect and destroy surplus, confiscated or collected small arms and light weapons;

"Invites the Secretary-General to provide advisory and financial assistance, within available financial resources and with any other assistance provided by states in a position to do so, in response to requests by States, in support of measures associated with combating illicit trafficking in small arms and light weapons, including assistance to collect and destroy surplus, confiscated or collected small arms and light weapons" (emphasis added).

These resolutions indicate a recognition of the need for resources, capacity, and assistance to facilitate implementation on the ground. Moreover, they point out the importance of developing, implementing, and supporting national and regional initiatives, signaling the need for the international community to take responsibility and show its willingness to take concrete steps to tackle the problem at hand. These resolutions are also politically important, since the underlying message is the critical need for political will and a commitment from states to work collectively to address the small arms problem and take the needed measures and/or assist other states in working toward a common goal.

Consistent with General Assembly action, the resolutions encourage and invite compliance on a voluntary basis. These general formulations, of course, reflect the complexities around the small arms issue, including considerations such as the economic implications, issues of self-defence, and arguments around the legitimate need for light weapons. They also indicate that while there is broad general support for action on small arms, a great deal of work still needs to be done to reach agreement on the specifics. The Preparatory Committee leading to the 2001 UN Conference aims to produce a draft concrete Plan of Action, with as much specific and regional input as possible, for presentation and acceptance by the Conference (see related story on the January PrepCom session). Thus, the General Assembly resolutions are a welcome indication of the willingness of states to provide assistance to states affected by small arms and the importance of cooperation among states in addressing the small arms problem. They shoul d be taken as a step toward the much more comprehensive Plan of Action expected from the Conference.

This year's UN action also builds on the growing awareness of the crucial need for agreed international norms and standards dealing directly with small arms and light weapons and the arms trade. The General Assembly reinforced the recent growing attention to the devastating impact of small arms and light weapons and confirmed that the accumulations and illicit transfers of small arms and light weapons have become legitimate concerns of the international community.

A number of initiatives in recent years have contributed to this positive international momentum around small arms. The OAS Convention (Inter-American Convention against the Illicit Manufacturing of and Thafficking in Firearms) was signed in November 1997; a moratorium on small arms was put in place in December of 1998 by the Economic Community of West African States (ECOWAS Moratorium on the Importation, Exportation and Manufacture of Small Arms and Light Weapons); and negotiations were undertaken and are still underway on the 'Firearms Protocol' (since April 1998, the Vienna-based UN Economic and Social Council's Commission on Crime Prevention and Criminal Justice has been negotiating the Revised Draft Protocol Against the Illicit Manufacturing of and Trafficking in Firearms, Their Parts and Components and Ammunition).

And now, the 2001 UN Conference on the Illicit Trade in Small Arms and Light Weapons in All Its Aspects is becoming the "primary focus for international action on small arms proliferation and misuse, attracting widespread attention from policy-makers and NGOs" (O'Callaghan 2000, p. 1). In fact, it is becoming a "central part of a global effort to combat the proliferation and misuse of small arms and light weapons," providing states "with an opportunity to pursue a more integrated approach to small arms" and to develop and implement legally or politically binding standards (O'Callaghan 2000, pp. 13-14).

References

Hill, Felicity 2000, Daily NGO Report on comm 1, 30 October, [Online] Available from http://[e-mail].

O'Callaghan. Geraldine 2000. The UN Firearms Protocol: Implications for the UN 2001 conference, 23 October. "Biting the Bullet," Briefing #4. [Online] Available from http://www.international-alert.org/btheb3m.htm.

Addressing the demand side of the small arms complex: ensuring balance at the 2001 UN Conference on the Illicit Trade in Small Arms and Light Weapons

Arghavan Gerami

In preparing for the 2001 UN Conference, regional initiatives and mechanisms have primarily focused on the supply side of the small arms complex. Conditions that generate demand for small arms have been given a low priority, thus limiting opportunities to learn from regional experiences in this area and to transfer these lessons into policy.

Recognizing the need to take action on this front, Quaker UN Offices (QUNOs) held a seminar in 1999 in Durban, South Africa, where 12 groups from major geographic regions were brought together to share thoughts and experiences on different aspects of demand-side issues, The seminars identified lessons in such areas as community engagement, transparency, economic dimensions, attitude, and identity. Building on the positive results of this seminar, in December 2000 another session was held in Nairobi, Kenya and attended by 35 organizations, many of them actively engaged in community programs (mainly from the East Africa and Horn regions). The participants reviewed developments and examined programs undertaken since Durban and through the presentation of new cases and sharing of approaches, arrived at a number of new lessons.

In both Durban and Nairobi it was recognized that the underlying demand for guns is closely linked to issues of sustainable development and human security (QUNO Report). The lessons focused on preventive measures such as poverty alleviation and gaining a detailed understanding of the political, historical, and anthropological context of a given community prior to undertaking efforts to curb demand (QUNO Report). The underlying principle is that accurate research information on a situation is essential for policy relevance and efficacy.

Another message that came across strongly in Nairobi was the importance of empowering communities and incorporating their voices into the policy formulation process. "All stakeholders should be included in a community dialogue on security" and their experiences and priorities taken into account in the organization of demand-side programs (QUNO Report). By consulting with communities throughout the policy-making and implementation process, governments and targeted communities significantly enhance the possibility for cooperation and acceptance of programs.

This point was highlighted during a day trip to Garissa, Kenya where community elders indicated they were willing to share their knowledge and offer their support (e.g., in enforcing a small arms control and retrieval system) provided they were taken seriously and involved in the process. This trip also illustrated the value of indigenous approaches to conflict resolution and management, particularly in devising creative methods of responsibility-sharing in the security sector to bridge the existing gap between formal and informal laws (QUNO Report). The Kenya session emphasized that "corrupt behavior, and systematic violence by police and other government agents is frequently a cause of insecurity in communities" and "may increase demand for weapons for self-protection and counter reaction" (QUNO Report).

In examining regional relationships, participants highlighted the need for a comprehensive approach to the small arms problems, and programs that take into account the geographic realities of their region (i.e., impact of border conflicts on small arms proliferation). "Programs dealing with these populations must deal with economic, cultural and conflict systems not with isolated problems" (QUNO Report). For example, through regional cooperation, laws in neighbouring countries can be harmonized, regional NGO government committees can be established (i.e., to implement existing declarations), disarmament and demobilization efforts can be jointly undertaken, resources can be better shared on both sides of the border, and other common problems (criminal groups, refugee populations, security and small arms) can be more effectively addressed.

Finally, participants embraced new and creative initiatives to build trust and confidence in the community, especially through transparency. Particular importance was given to the public destruction of surrendered or surplus guns at the local level, under the control of all the stakeholders, to reassure communities that weapons will not fall into the wrong hands, be reused against them, or be exported to other conflict areas. Similarly, participants showed great interest in the idea of establishing gun-free zones (e.g., schools, hospitals).

These lessons formed a basis for the International Workshop on Demand Reduction in Toronto, March 14-17 (sponsored by Project Ploughshares and funded by the Department of Foreign Affairs and International Trade). This workshop continued the learning process while ensuring that the 2001 UN Conference on Small Arms does not focus its efforts solely on supply-side measures, but takes a balanced approach that acknowledges and incorporates into its Action Plan initiatives aimed at curbing the demand for small arms.

(The report draws in part on the QUNO Report on the Nairobi Seminar entitled "Curbing the Demand for Small Arms: Lessons and the Horn of Africa," Nairobi, Kenya, December 12-16, 2000.)