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R [:  PERMANENT COUNCIL OF THE OAS/Ser.G ORGANIZATION OF AMERICAN STATES CP/CSH-845/07 26 March 2007 COMMITTEE ON HEMISPHERIC SECURITY Original: Textual Effective Strategies to Mitigate the Threat Posed by the Use of Man-Portable Air Defense Systems (MANPADS) by Non-State Actors March 8, 2007 Washington, D.C. RAPPORTEUR�S REPORT (Presented by Counselor Francisco Javier Bernales Err�zuriz, Alternative Representative of Chile to the OAS) MEETING ON �EFFECTIVE STRATEGIES TO MITIGATE THE THREAT POSED BY THE USE OF MAN-PORTABLE AIR DEFENSE SYSTEMS (MANPADS) BY NON-STATE ACTORS� Washington, D.C., MARCH 8, 2007 RAPPORTEUR�S REPORT (Presented by Counselor Francisco Javier Bernales Err�zuriz, Alternative Representative of Chile to the OAS) MEETING ON �EFFECTIVE STRATEGIES TO MITIGATE THE THREAT POSED BY THE USE OF MAN-PORTABLE AIR DEFENSE SYSTEMS (MANPADS) BY NON-STATE ACTORS� Washington, D.C., MARCH 8, 2007 INTRODUCTION The Meeting on �Effective Strategies to Mitigate the Threat Posed by the Use of Man-Portable Air Defense Systems (MANPADS) by Non-State Actors� took place at the headquarters of the Organization of American States (OAS) on March 8, 2007. The Agenda provided for an inaugural session and two plenary sessions. Eleven special guests presented their points of view and national experiences in this area with the participation of delegations from 26 member states. INAUGURAL SESSION Introductory remarks by the Chair of the Committee on Hemispheric Security, Ambassador Javier Sancho Bonilla At the inaugural session, starting at 10:05 a.m., Ambassador Javier Sancho Bonilla, the Permanent Representative of Costa Rica to the OAS, noted that the meeting was being held pursuant to resolutions AG/RES. 2145 (XXXV-O/05) �Denying MANPADS to Terrorists: Control and Security of Man-Portable Air Defense Systems (MANPADS)� and AG/RES. 2246 (XXXVI-O/06) �Cooperation on Some Matters of Security in the Hemisphere.� These mandates require the Permanent Council to convene, before the next regular meeting of the General Assembly, a meeting within the framework of the CHS and in coordination with the Inter-American Committee against Terrorism (CICTE) and the Consultative Committee of the Inter-American Convention against the Illicit Manufacturing of and Trafficking in Firearms, Ammunition, Explosives, and other Related Materials (CIFTA), regarding effective strategies to mitigate the threat that MANPADS pose for all countries in the region. Ambassador Sancho Bonilla acknowledged that even though the Hemisphere has not had the misfortune of dealing with attacks using MANPADS, this is a latent threat given the extreme dangerousness of this type of weapon and the serious consequences that an action of this nature would entail. He underlined that the danger comes from �the high number of MANPADS produced, inadequate control of arsenals and the availability of MANPADS on the black market.� For this reason he maintained that the member states must adopt the national controls needed to prevent these missiles from being diverted to non-state actors. In this context, he recognized the efforts of the OAS, the United Nations, and the International Civil Aviation Organization (ICAO). In regional terms, he noted that CIFTA, CICAD and Resolution AG/RES 2145 (XXXV-O/05) are some of the existing mechanisms that address the issue of MANPADS control and security. Ambassador Sancho also acknowledged that �the issue of the illicit trafficking of small arms and light weapons is multidimensional� and, therefore, must be addressed from a �comprehensive perspective� that incorporates �national, regional, and global dimensions,� in which assistance and cooperation between governments and civil society is essential. In addition, he noted that the humanitarian and socioeconomic repercussions of the illicit trafficking of small arms and light weapons must not be overlooked. Thus, the problem must be evaluated in conjunction with �policies for combating poverty and promoting the well-being and human development of our peoples.� In this context, he quoted Costa Rican President and Nobel Peace Laureate, Oscar Arias S�nchez, who expressed the hope that �increasingly there will be more young people with books under their arms and fewer with guns on their shoulders.� The text of his comments can be found in document CP/CSH/INF. 98/07. FIRST PLENARY SESSION 1. Approval of Agenda and Calendar Approved without comment. 2. Election of the Rapporteur The Argentine delegation suggested that the undersigned, Counselor Francisco Javier Bernales Err�zuriz, Alternate Representative from Chile to the OAS, serve as Rapporteur for the meeting. The suggestion was seconded by the United States and adopted by acclamation. I am grateful to the States that suggested my name for their confidence in me and to the participating members for entrusting me with this task. 3. MANPADS and civil aviation a. Technical Briefing on MANPADS Presentation by Mr. Chris Hughes, United Kingdom Ministry of Defense: �MANPADS: What they do and how they do it.� This was a decidedly technical presentation in which Mr. Hughes used a Power Point presentation to describe each of the components of the weapons system and explain how MANPADS operate. As a way to show the impact on civil aviation, he showed a video of the destructive effect that an attack with portable missiles in Iraq had on an airplane belonging to DHL on November 22, 2003. He also included a list of companies that produce MANPADS, as well as the countries to which they belong. Finally, he suggested consulting the publication Jane�s Landbase Air Defence Systems for more information. b. MANPADS and the Threat to Civil Aviation - Presentation by Halina Biernacki, Aviation Security Officer, International Civil Aviation Organization (ICAO). Ms. Biernacki agreed with Mr. Hughes that MANPADS represent a �serious threat to civil aviation.� As an example, she noted that in the last 30 years there have been more than 40 incidents and that of these �more than six have been successful,� primarily in Africa, the Middle East, and Latin America. She emphasized that an attack using these weapons �also causes confusion in society, can have serious economic consequences and undermine public confidence in air travel.� Bearing in mind that the security and protection of civil aviation are the �primary objectives of the ICAO,� she noted the adoption of the Recommended International Standards and Methods that have been designated as Annexes to the Convention on International Civil Aviation. On the subject of MANPADS, she asserted that all governments must combine their efforts to �control and prevent their illicit use.� To contribute to this effort, she reported that ICAO has a secure Internet site that provides practical instructions for implementing measures against these weapons systems. She also emphasized that ICAO has recommended mandatory installation of air defense systems on aircraft. This has been resisted by commercial airline companies, arguing against them on the basis of high costs, reduced aircraft cargo capacity, increased fuel consumption, and possible interference with communication systems. As an effective contribution made by the ICAO, she noted the adoption of Resolution A35-11 in 2004, which encourages all Contracting Parties to adopt appropriate measures to maintain effective control over the importation, exportation, transfer, and storage of MANPADS, including ensuring the destruction of those from illicit sources. The resolution calls on States to implement the principles defined in Elements for Export Controls of MANPADS of the Wassenaar Arrangement. In conclusion, she stated that �non-proliferation, counter-terrorism and contingency security plans are the most effective methods for counteracting the effects of MANPADS.� The text of this presentation can be found in document CP/CSH/INF. 101/07. Presentation by Aaron McCrorie, Chief of Research and Evaluation, Security Policy, Transports Canada. From the perspective of Transports Canada, Mr. McCrorie analyzed the risk to civil aviation from MANPADS, possible mitigation measures, and his country�s experience in this area. He expressed the view that security is not a goal but rather a means to an end, the secure movement of goods and persons, an end that can only be attained by strengthening security. Risk assessment is what provides the tools on how to strengthen the system while ensuring continuous and safe operation. He went on to define risk as an equation that adds up threat, vulnerability and impact. In that equation threat represents the risk of an attack, vulnerability the likelihood that the attack will succeed, and impact the consequences of that success. In this context, Mr. McCrorie reported that risk assessment in Canada is carried out by an inter-governmental Working Group, which has concluded that vulnerability is low. Nonetheless, he acknowledged that the impact of an attack could be very significant given the number of lives at risk, the loss of confidence and the economic disruption it could generate. The high number of MANPADS in circulation and in the hands of 27 non-state or terrorist groups is in itself a threat. He explained that five categories of mitigation have been established in Canada: airport vulnerability assessment; operational measures and tactics; specialized flight tactics; non-proliferation initiatives; and stockpile control. Among these, he indicated that the non-proliferation and stockpile control initiatives are the most effective for reducing the risks posed by MANPADS. 4. Effective National Strategies to Mitigate the MANPADS Threat Presentation by Matthew Schroeder, Federation of American Scientists, �The MANPADS Threat � A Civil Society Perspective.� Mr. Schroeder characterized the MANPADS threat as a �global problem� in that they are produced in more than 20 countries and imported �by at least 100 countries.� He felt that this would not present a problem if there were strict export controls, which does not always happen. Thus, �deliberately or through inadvertence� the missiles end up in the hands of terrorists. For this reason, he called on all countries, including those in which there is no danger of a MANPADS attack, to join in international efforts to confront this threat. He mentioned the Wassenaar Arrangement as one of the agreements in effect for the control of exports. He considered the following actions to be achievements in the area of security: - Export controls: he noted the adoption of five multilateral agreements signed by 95 countries, in addition to various resolutions. They all insist on the need to have state controls and that transfers should not be made only to governments but to governments that guarantee their security. - Destruction of inventories and security: He noted the work that organizations like OSCE and NATO have done in this field. He referred to some guidance programs that help improve the handling of MANPADS such as the �Handbook of Best Practices.� - Transparency: He emphasized that MANPADS are included under Category VII of the United Nations Register of Conventional Arms. - Airport perimeter security: He applauded the 2005 APEC initiative in this area. He cited it as a multilateral example to be emulated and that is feasibly implemented. - Anti-missile systems: He referred to efforts to adapt for use in commercial aircraft technologies that are designed for military systems. Regarding actions to be undertaken, he emphasized that the first step is for governments to implement the existing agreements. Pressure must then be exerted on those governments that still allow missiles to be transferred to non-state actors, supplying the black market. Finally, it would be useful to develop measures to control launches, although this is an initiative that has been largely ignored. On this subject, he indicated that no producer has designed a device that could control the useful life of a missile or prevent its use. The text of this presentation can be found in document CP/CSH/INF. 95/07. a. Export and Import Controls - Presentation by Colonel Jan-Erik L�vgren, Deputy Director-General of the Swedish Inspectorate of Strategic Products Colonel L�vgren�s presentation provided an introduction to the administrative and operational structure of the Swedish export control system and described the MANPADS RBS 70 system produced by Saab Bofors Dynamics (SBD). In the global arena, he referred to international agreements dealing with this subject such as the Wassenaar Arrangement and other regional agreements. The text of this presentation can be found in document CP/CSH/INF. 94/07. b. Stockpile Management and Physical Safety Presentation by Colonel F�lix Mu�oz of the Inter-American Defense Board (IADB) Colonel Mu�oz� presentation dealt with inventory management and control of stockpiles to keep MANPADS from falling into the hands of terrorist groups. He referred to the physical characteristics and components of warehouses and transportation, storage and operational security. In concluding, he recognized the danger posed by MANPADS in the hands of non-state actors who obtain them on the black market. He reported that aircraft are more vulnerable when taking off and landing and that governmental support is needed to maintain constant control over the existence of MANPADS. The text of this presentation can be found in document CP/CSH/INF. 103/07. SECOND PLENARY SESSION As an aside to the program, the representative from the Inter-American Defense Board took this opportunity to issue an invitation, on behalf of the Council of Delegates, to three panels on the subject of the �Future of the IADB� (March 19, 23, 26, 27, and 28) in commemoration of its 65th anniversary. Regional Approaches a. Review of OAS, APEC Efforts Presentation by Ambassador Alfredo Labb� Villa, Alternate Ambassador, Permanent Mission of Chile to the United Nations Ambassador Labb� addressed the security problem posed by MANPADS and how APEC has approached this subject. After delivering a brief historical summary, he referred to the �human security dimension,� a concept introduced in 2003 when it was determined that �it is impossible to separate trade security from personal security.� In that year, the issue of MANPADS was incorporated in the APEC agenda through the Counter Terrorism Task Force (CTTF). He noted that later, at the Santiago Summit (2004), agreement was reached to strengthen domestic controls on production, handling of stockpiles, transfer and trade in these weapons systems, with the adoption of the Guidelines on Control and Security of MANPADS. He noted that these are the same guidelines as those adopted under the Wassenaar Arrangement, which have also been adopted by the ICAO. More recently, in 2006, a �MANPADS Vulnerability Assessment at International Airports� was launched in Busan (Republic of Korea). The text of this presentation can be found in document CP/CSH/INF. 105/07. b. Review of Other Regional Efforts - Presentation by Peyotr Litavrin, Department for Security Affairs and Disarmament, Ministry of Foreign Affairs of Russia Mr. Litavrin outlined the efforts of Russia and the Community of Independent States (CIS) to mitigate the effects of MANPADS. He pointed out that in Russia and the CIS �the real problem� is to provide physical protection for MANPADS so as to prevent their being diverted to the black market. He noted that this has not been a problem of �legislation but rather one of capacity� to ensure their defense. He felt that �cooperation and mutual assistance� is the only way to prevent the illegal proliferation of MANPADS. He reported that because of this, in 2003 the Heads of State of the CIS (with the exception of Uzbekistan) signed an agreement at Yalta on issues relating to the international control of transfers of MANPADS, in which transparency is one of the central themes. The text of this presentation can be found in document CP/CSH/INF. 102/07. - Presentation by Jenifer McAdam, Director, National Security Section, Department of Foreign Affairs and Trade of Australia Ms. McAdam referred to the MANPADS threat in the Asia-Pacific region and a three-year international diplomatic initiative launched by the Australian Chancellor in 2005 to keep MANPADS from being purchased illegally for use against Australian civil aviation, even though a risk assessment study concluded that the risk is low in her country. She noted, however, that the risk is not low for the entire air navigation system. She noted an important aspect, i.e., that after the attacks of 9/11 and the adoption of strict security measures for passenger controls, a MANPADS attack has become more attractive to terrorist groups, given the difficulty of reaching the cockpit or evading airport checkpoints. She also referred to international control efforts such as those of the UN, the Wassenaar Arrangement, OSCE, ICAO, and APEC, indicating that the implementation of current agreements by governments is �decisive.� Regarding efforts in upcoming years, she mentioned strengthening agreements on national and international information-sharing; implementation of international agreements and commitments; and identification of training opportunities to improve the capabilities of the region around Australia and �like-minded� nations worldwide. - Presentation by Donna A. Phelan, Senior Arms Control Adviser, Organization for Security and Cooperation in Europe (OSCE) Ms. Phelan outlined the measures taken by the OSCE Forum for Security Co-operation with respect to the control, security, and destruction of MANPADS. She indicated that the organization�s first commitment regarding these missiles dates from the year 2000 with approval of the Document on Small Arms and Light Weapons, which contains a series of standards, principles and measures on the subject as well as on MANPADS. More specific attention was given to MANPADS in the year 2004 with the adoption of Decision 3/04, establishing Principles for Export Controls of MANPADS, based on the Wassenaar Arrangement. The National Procedures for Stockpile Management and Security of MANPADS were drawn up in 2006 and incorporated as an Annex to the Handbook of Best Practices on Small Arms and Light Weapons. In concluding, she underlined the importance of governments� taking appropriate actions to ensure control as well as offering cooperation to countries that need it. The text of this presentation can be found in document CP/CSH/INF. 97/07. Resources Available to Assist Member States - Presentation by Pamela Maponga � Officer in Charge of the Conventional Arms Branch, Department for Disarmament Affairs (United Nations) Mrs. Maponga indicated growing interest in this subject on the part of the international community, emphasizing that the OAS is one of the few �regional organizations that has not only put the subject on MANPADS on its agenda but has adopted concrete measures to strengthen actions against these weapons systems.� These are the recommended guidelines for control and security of MANPADS of 2005 as defined in resolution AG/RES. 2145 (XXXV-O/05). With respect to financial assistance that can be provided to the member states for resolving MANPADS-related problems, she reported that the U.N. Department for Disarmament Affairs administers and manages two Trust Funds. These are the �Fund for the Consolidation of Peace through Practical Disarmament Measures� and the �Trust Fund on Global and Regional Disarmament Activities.� Regarding technical assistance, she pointed out that the U.N. Regional Centre for Peace, Disarmament and Development in Latin America and the Caribbean (UN-LIREC) can provide support to member states that request it for the destruction and handling of stockpiles, as well as for increasing the security of warehouse sites for small arms and light weapons and MANPADS. In addition, she reported that the U.N. Office on Conventional Weapons is developing a database that will bring together information on the implementation of the Programme of Action to Prevent, Combat and Eradicate the Illicit Trade in Small Arms and Light Weapons in All Its Aspects. This will promote international cooperation and assistance in the implementation of this program, providing information on countries that require assistance and on areas of interest to donors. The text of this presentation can be found in document CP/CSH/INF. 96/07. Implementation of OAS MANPADS Guidelines (AG/RES. 2145(XXXV-O/05)) - Member States� Interventions In this portion of the meeting, comments and questions were presented by the delegations from Argentina, Canada, Colombia, Chile, the United States, and Mexico: - Argentina The Argentine representative provided detailed information on what the Republic of Argentina is doing with respect to the control of MANPADS, both nationally and in tandem with multilateral organizations. In addition, he emphasized the role of CIFTA in this area. - Canada The Canadian representative made note of the first meeting of the States Party to the Inter-American Convention on Transparency in Conventional Weapons Acquisitions and the draft resolution supported by Canada, Chile, and Argentina. In addition, he reported that although his country is not a producer of MANPADS it has adopted all the controls for ensuring their security. - Chile The Chilean representative indicated that Chile has regulations and mechanisms for controlling stockpiles and ensuring that their handling is consistent with international legislation. He mentioned that OAS adoption of the two resolutions in this area (even anticipating those of other organizations) is a reflection and demonstration of the important contribution that the regional dimension of multilateralism makes in resolving global problems. In this context, he referred to the Inter-American Convention on Transparency in Conventional Weapons Acquisitions. He stated that through this mechanism the OAS is making a �weighty contribution� to addressing serious issues on the multilateral international security agenda. - Colombia The Colombian representative reported that although the use of MANPADS by non-state actors has not been detected, he recognized the seriousness of the eventuality of such an occurrence. He called on producers and importers to strengthen controls in the production, transfer, and storage of these weapons. He called on countries that have not done so to sign the CIFTA Convention. - United States The U.S. representative expressed support for the efforts of the General Assembly of the OAS in combating the MANPADS threat; he reported that the U.S. applies rigorous controls on their export and transfer. He called on all governments to adopt similar measures to keep MANPADS from falling into the hands of non-state actors. He noted that there is a list of governments and entities to which these missiles are not transferred. Finally, he offered assistance for stockpile control and security for these weapons systems and assessment visits for countries that request it. - Mexico The Mexican representative asked Ambassador Labb� how he would compare or distinguish the achievements in APEC and the handling of the subject of MANPADS in the United Nations. He asked whether there is parallel treatment or whether APEC is more advanced. In responding, the Ambassador acknowledged that there is parallel treatment since the resolutions or provisions that have been adopted by the U.N., APEC, ICAO, and OAS are �exhortatory� and directed to States (or economies in the case of APEC), urging them to adopt in the exercise of their national sovereignty domestic provisions relating to stockpile control, maintenance, handling, and exports. He indicated that there are no significant differences in this regard. He underlined that in the case of APEC these guidelines are those of the Wassenaar Arrangement. Later, he expanded on differences in the decision-making process between international organizations and APEC. He emphasized that while States are the actors in the former, in the latter there is a conjunction between leaders of the economies and the private sector and even users. I want to be sure to take this opportunity to express our appreciation for the splendid MANPADS display that the United States Department of Defense put together for this meeting, and to thank the monitors who explained how MANPADS work and provided technical details. I would also like to acknowledge the always arduous work of the interpreters, particularly when dealing with a very technical subject like the one discussed at this meeting, and to express our appreciation to the conference room assistants and Mrs. Carolina Santa Mar�a, Secretary of the Committee on Hemispheric Security, for their support in the preparation of this report. 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