17 Destruction of small arms and light
weapons and their ammunition in Ukraine
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| Draft Council Decision for the destruction of small arms and light weapons and their ammunition in Ukraine
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| Legal base | Article 14 EU; unanimity
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| Department | Foreign and Commonwealth Office
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| Basis of consideration | EM of 11 November 2005
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| Previous Committee Report | None
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| To be discussed in Council | 21-22 November 2005 GAERC
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| Committee's assessment | Politically important
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| Committee's decision | Cleared
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Background
17.1 In the past Ukraine had a large military industrial complex,
held the third largest nuclear weapons arsenal in the world, and
served as a base for the USSR's strategic reserves of arms and
ammunition. Estimates suggest that Ukraine holds at least 7 million
Small Arms and Light Weapons (SALW) and at least 2 million tonnes
of ammunition. These large quantities of SALW and ammunition not
only represent a huge surplus in terms of Ukraine's current armed
forces levels but also include large numbers of unserviceable
and hazardous items of ammunition.
17.2 According the NATO website, the NATO Partnership
for Peace (PfP) Trust Fund Policy was established in September
2000 as a mechanism to assist NATO Partner Nations in the safe
destruction of stockpiled anti-personnel landmines under the Ottawa
Convention. To date, more than 2 million landmines have been successfully
destroyed within the framework.[44]
17.3 The present project — described as the
largest single demilitarisation effort in the world — is
"a practical demonstration of NATO's continuing commitment
to support Ukraine's defence reform". It responds to Ukraine's
request for assistance in eliminating 133,000 tonnes of munitions
and 1.5 million small arms and light weapons (SALW). "Much
of this material is stored in the open, posing a major security
threat to local civilian population and infrastructure. Safe destruction
of these stocks also eliminates potential proliferation risk.
The Trust Fund project will be executed in four phases, over 12
years. The voluntary contributions to the Trust Fund, estimated
to be in excess of €25 million, will be used to purchase
new equipment and improve Ukraine's demilitarisation capabilities.
Ukraine will contribute in-kind to the demilitarisation costs.
The United States has agreed to act as Lead Nation for the first
phase of the project. The initial phase is estimated to cost €7
million over three years. This is the first time the US has taken
on the role of lead nation of a NATO/PfP Trust Fund project. In
addition to the US, the United Kingdom and Norway have pledged
funding for this project".
The Council Decision
17.4 In his 11 November Explanatory Memorandum, the
Minister of State for Europe in the Foreign and Commonwealth Office
(Mr Douglas Alexander) explains that, under the terms of the PfP
Trust Fund, the NATO Maintenance and Supply Agency (NAMSA) is
managing the project. He goes on to say that:
"The European Union considers that a financial
contribution to this project would help Ukraine to reduce the
risks related to the accumulation of large quantities of SALW
and ammunition and accommodate the level of SALW and ammunition
to its current armed forces levels. The European Union contribution
will finance:
- purchase and installation of the pollution abatement
system for the explosive waste incinerator;
demilitarisation of weapons;
purchase of two furnaces for melting weapons;
purchase and installation of remotely controlled
band saws for cutting explosive ordnance;
purchase of a hydraulic press;
up to 7% of the direct costs of the project.
"NAMSA will procure the supply, installation
and commissioning of the necessary demilitarisation and other
equipment from commercial or government entities based in NATO
countries or from those that qualify under the Partnership for
Peace (PfP) Trust Fund policy, in addition to similar entities
from EU Member States and Ukraine".
The Government's view
17.5 The Minister says:
"Following on from the 2001 UN Conference
on Small Arms, the Government is committed to combating the small
arms problem. Full support is given for the implementation of
the UN Programme of Action to which the UK is spending £13.25
million (2004-07) to support practical programmes.
"The Government fully supports this Decision.
It remains a practical step in the fight against small arms and
ammunition proliferation, to which it remains committed. This
project remains a significant part of EU and international efforts
to curb the global proliferation of and misuse of SALW. "
17.6 On the financial aspects, he further notes:
"The financing for these projects will come
from the CFSP budget. For the period of this Council Decision
(1 year) this will cost €1,000,000 (£676,700). The UK
currently contributes approximately 17% towards the CFSP budget.
For this Council Decision this equates to €170,000 (£115,039).
"The Commission will conclude a financing
agreement with the NATO Maintenance and Supply Agency (NAMSA)
on the conditions for use of the European Union contribution,
which shall take the form of a grant. The specific financing agreement
to be concluded shall stipulate that NAMSA will ensure visibility
of the European contribution, appropriate to its size".
Conclusion
17.7 Although the sums of money are relatively
small, we consider that the matter is politically important, not
only in terms combating weapons and munitions "leakage"
in Europe to criminals and enhancing stability, but also —
as has been the case before with such weaponry from other parts
of the old Soviet "bloc" — ensuring that they
do not fuel conflicts elsewhere, e.g., in Africa.
17.8 The progress made in this programme will
also be an important indicator of the Ukrainian authorities' willingness
and ability to deliver results, and thereby illustrate their commitment
to European Union values. Therefore, while clearing the document,
we ask the Minister to report progress in a year's time —
either in the context of renewing the Council Decision or otherwise
— in the hope that he will be able to demonstrate the right
degree of Ukrainian participation and the right outcomes.
44 http://www.nato.int/docu/pr/2005/p05-021e.htm. Back
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