by Ray Acheson, Reaching Critical Will of WILPF
On Tuesday
morning, the president of the arms
trade treaty (ATT) negotiating conference released the first
draft consolidated text. Debate on the text ensued in the afternoon. As
most delegations argued, the text is much too weak to achieve the goal that
motivated this process in the first place: preventing and reducing human
suffering caused by armed violence and conflict.
In other
areas, the language is quite explicit in its provision of loopholes. For
example, article 2 on scope only includes munitions as an item that could be
regulated “to the extent necessary” to ensure that the national controls on the
weapons covered are not circumvented by the export of munitions of those
weapons. This essentially translates as, “a state can regulate the export of
ammunition if it wants to”.
The Economic
Community of West African States (ECOWAS), representing Benin, Burkina Faso,
Cape Verde, Côte d’Ivoire, Gambia, Ghana, Guinea, Guinea Bissau, Liberia, Mali,
Niger, Nigeria, Senegal, Sierra Leone, and Togo, said that it cannot accept an
ATT that does not include munitions and ammunition fully in its scope. The
inclusion of ammunition was supported by almost all delegates taking the floor
on this issue, except for the United States and China. As Liberian
President Ellen Johnson Sirleaf said on 12 July, the ATT must regulate
ammunition, “without which guns may be reduced to silence.”
The sections
of the draft treaty relating to criteria and authorization of transfers are
full of equally large gaps. For example, article 3 says that a state party
shall not authorize a transfer “for the purpose of facilitating the commission
genocide, crimes against humanity, war crimes constituting grave breaches of
the Geneva Conventions of 1949, or serious violations of Common Article 3 of
the Geneva Conventions of 1949.” Not only are the references to the specific Geneva
Conventions too narrow, but circumstance in which a state would apply to import
arms specifically for the purpose of committing genocide or any of the other
crimes listed is a rather high threshold for prohibition. Transfers must be
prohibited in the case of substantial
risk of any of these crimes, just as they should be prohibited for
substantial risk of violations of IHL and IHRL.
Violations of
IHL and IHRL, however, are only included in the risk assessment process in article
4. As currently written, the risk assessment process would have to somehow
balance the risk of violations of IHL, IHRL, or treaties relating to terrorism
or transnational organized crime against the weapons’ potential contribution to
peace and security. To suggest that weapons could contribute to peace is bad
enough; but to suggest that a risk assessment should weigh a substantial risk
of violations of IHL against what the exporting
state views as a benefit to peace and security—a circumstance which, should
be noted, is not defined in this treaty—would gravely undermine states’
existing obligations to ensure respect for IHL.
For the first
time, the outcome of the risk assessment process clearly states that if a substantial
risk is found, the authorizing state shall not authorize the transfer. This is
a good step forward from previous language suggesting “presumptions” against
authorizing the transfer. However, article 4 also specifies that the
substantial risk would be “in the view of the authorizing State Party”.
Arguably, this contradicts the requirement for an objective risk assessment,
which would presumably be based on multiple sources of information.
Furthermore, the requirement to not authorize the transfer is severely compromised
by the reference to contributing to peace and security in the list of criteria.
To address this problem, Nigeria and Uruguay suggested changing “contribute to
peace and security” to “be used to undermine peace and security”.
Then there is
the problem with article 5. It references items that should be included in the
risk assessment process—the risk of diversion to the illicit market; risk of
gender-based violence or violence against children; risk of corruption; and
risk of adversely impacting development. Instead, these four criteria are in a
paragraph that says when a state party is authorizing an export it “shall
consider taking feasible measures, including joint actions with other States
involved in the transfer, to avoid the transferred arms” from being used to
these ends. The text does not indicate what measures this might entail, nor
does it make such measures mandatory. But even more unacceptable is the
suggestion that optional measures should be taken to avoid these consequences,
rather obligating the state party to deny the transfer if there is a risk of
these consequences occurring. All of these criteria should be fully included in
a risk assessment process, the result of which is that if a substantial risk is
found, the transfer shall not be authorized.