With the intention to contribute to the ongoing efforts to reduce the threat of man-portable air defense systems ( MANPADS) to civil aviation, the Israel Ministry of Foreign Affairs hosted an international meeting in Jerusalem (5-6 April, 2006). This summary reflects the ministry's impressions of the discussions, in which 30 experts from 25 states participated.
The threat
The level of threat of MANPADS to civil aviation was a central subject of discussion during the meeting. Participants addressed questions such as the distinction between civilian and "military" targets as well as the nature of threat in different regions. Apparently civilian air-crafts are more susceptible to the threat of MANPADS. The impact of MANPADS hitting a civilian aircraft may have far reaching consequences on civil aviation as well as the economic and political stability of affected states.
Participants identified MANPADS as a potential "weapons of mass effect". It was also acknowledged that MANPADS present a clear and present danger to civil aviation, in particular if used by terrorists.
Since the threat is perceived as global, it requires a joint international effort. Despite the complexity of the issue such international efforts could contribute significantly to reduce the threat.
The appropriate international forum
Many participants underlined that MANPADS are closely related to other relevant weapons categories such as missiles or small arms and light weapons. At the same time, many highlighted the advantages in giving a special treatment to MANPADS in view of the unique characteristics of this type of weapon system (easily obtained and operated, relatively cheap and with a massive potential impact).
It seems that whether dealt with separately or in the framework of other weapons category, the common understanding is that a multi-facetted or multi-layered approach is needed to effectively address the security challenges of MANPADS.
During the meeting, the potential advantages and disadvantages of using different international frameworks to deal with the problem were discussed, among them the Convention on Certain Conventional Weapons (CCW), UN Security Council resolutions 1373 and 1540 (as these resolutions are closely related to the issue of terrorism and are therefore relevant to the MANPADS threat), different consultation groups on Missiles, and UN General Assembly resolutions 59/90 and 60/77.
It should be emphasized that different MANPADS initiatives, including the Jerusalem meeting are in fact the implementation of Operative Paragraph 2 of UNGA Resolution 60/77.
Some participants described other bilateral and regional initiatives, and all experts were of the view that these activities should be encouraged.
Transfer Controls
Transfer controls are an essential element in reducing future risks. The main issues highlighted in this context:
- The legitimate right of Governments to possess and transfer such weapons.
- Transfers must be limited only to Governments or to entities duly authorized by them.
- The possibility to expand the scope of existing standards on control of MANPADS inter-alia on the basis of the Wassenaar Guidelines of December 2003.
- The need to apply national monitoring systems.
- The need to limit, or otherwise improve control over retransfers as well as transshipment and brokering.
- The need to meet minimum threshold requirements of national export controls and stockpile management of the recipient state.
- Application of high stockpile management standards to both the missile and the firing system.
- National responsibility for the implementation of standards as the most important factor.
Different ideas were presented as to the way to enhance effective controls both by producing/exporting states and by recipient states. These include exchange of information on national legislation and periodic meeting of national control authorities from different states. The Jerusalem MANAPDS meeting provided a platform for exercising this idea as some participants presented their national practices and legislation on the control of MANPADS. In addition, some participants described regional activities which they took part in.
Physical Security and Stockpile Management (PSSM)
Physical Security and Stockpile Management (PSSM) are the most urgent and important measures to be applied in order to prevent the unauthorized access to MANPADS. Two relevant aspects in this context are the acountability of inventory and standards for physical security.
A proposal on bst pactices in this field was presented as well as a presentation of bilateral activities to improve states' capacities in these fields and the destruction of surplus (18,000 MANPADS were in fact destroyed within this framework in recent years).
The discussion mainly focused on how to expand bilateral and regional activities for capacity building in this regard and how to promote the creation and implementation of standards, taking into consideration national sensitivities and budgetary implications.
Counter-measures
Different counter-measures were presented, including airfield security and civilian aircraft protective measures. The need to enhance cooperation and exchange information including in the field of capacity building, was underlined.
The reliability of aircraft protective measures (including the risk of unintentional activation), and their cost-effectiveness seem to be the most relevant considerations of states on the issue. Bilateral intelligence cooperation, where possible, could significantly improve targeted response to specific threats.
Transparency
Ideas on the possible contribution of transparency measures were presented including transparency in national legislation, on the transfers of MANPADS, on military holdings, information on destruction of surplus/confiscated or collected MANPADS etc. In this regard it was noted that the very need for an annual report would require a yearly review of inventories and thus could improve the possibility for early detection of missing or stolen MANPADS.
Additional Measures
Some ideas for possible additional measures were discussed during the meeting:
- Raising awerness through seminars and workshops, nationally, regionally and internationally.
- Encouraging political leaders to give statements on the threat and the need to address it.
- Expanding UNGA resolution on MANPADS to include specific measures.
- Dealing with the issue in the Conference on Disarmament in Geneva (CD).
- Consideration of a mandate to negotiate a new international instrument through the establishment of a group of governmental experts or an open ended working group.
- Promoting activities for capacity building in particular in the field of transfer controls and PSSM.
- Code of Conduct on MANPADS.
- Increasing cooperation with the industrial sector including those that produce missiles and those that develop counter-measures.
All participants expressed their interest in expanding international cooperation and in continuing the activities in a way that would preserve the international consensus created.