Supporting Africa-China-EU dialogue on conventional arms: an interview with Ambassador Ochieng Adala

Over the past year, nine arms control experts have been gathering regularly in different capitals to discuss issues related to combating the proliferation of small arms and light weapons (SALW) and to support the UN Arms Trade Treaty (ATT) process. Ambassador Ochieng Adala is a member of this Africa-China-EU Expert Working Group (EWG) on Conventional Arms which was established by Saferworld to encourage Africa-China-EU dialogue on conventional arms. Here Ambassador Adala talks about the work and successes of the EWG and prospects for the control of conventional arms going forward.

Firstly, can you tell us what you think is the most important characteristic of the Expert Working Group?

An important characteristic of the Expert Working Group (EWG) is its diversity. It brings together nine experts from Africa, China, and Europe, who have wide and varied experience in disarmament, advocacy, and practical involvement on matters of peace and security in their continents.

As a key member of the EWG, what do you think have been the most important outcomes from the EWG meetings you have attended in Brussels, Kampala, and Beijing?

There have been important outcomes from all three of the group’s meetings. At the first meeting, in Brussels (13 November 2012), one of the objectives was to discuss EU–China commitments to assist Africa in combating illicit proliferation of SALW. The most important outcome was the decision to focus on South Sudan and Uganda, and to this end, the EWG identified the kind of external assistance required by both countries to address demining, weapons collection, stockpile management and record keeping, training, and awareness-raising. The group also agreed on the need to conduct a fact-finding visit to South Sudan to assess the situation on the ground regarding disarmament, demobilisation, and reintegration.

At the second meeting, in Kampala (9 April 2013), we reviewed the group’s activities since Brussels. An important outcome was the development of a work plan for activities between April and August 2013, including a regional conference to be held in Nairobi on 2/3 July 2013 to address illicit SALW and ammunition in Eastern Africa. A fact-finding mission/study tour to South Sudan was also confirmed.

The purpose of the recent Beijing meeting (15 May 2013) was to hold a dialogue with Chinese actors on the implications of China’s abstention from the ATT on 2 April 2013, as well as look at China’s future engagement with the ATT process and implementation. A significant outcome was assurance from China that although it abstained on procedural issues, it still remains committed to an ATT that will help save lives when implemented objectively, without discrimination, and respecting the principle of non-interference.

Can you give an example of the role the group has played in furthering dialogue? Can you identify important lessons from those conversations?

There are several examples, but the two that come to mind are the extended meetings with EU partners in Brussels after the EWG’s formal meetings, where the emphasis focused on technical details of the treaty text; and the Beijing meeting with representatives from the Government of China, Chinese think tanks, and a cross-section of stakeholders, including those from major arms exporting countries and arms importing countries. Practical issues were discussed, such as the timeframe and the internal approval procedure for the treaty signature and ratification by countries whose representatives were present. China’s abstention and its attitude towards future engagement were also clarified. Possible international cooperation and assistance was also a key topic. The overall impression was that such dialogue and exchange, with the participation of governmental and civil society representatives, should continue and it was felt that this would definitely contribute to the treaty’s future. We also recognised that this will be a long process.

The EWG participated in the 16 May 2013 seminar on the Next Steps of the UN Arms Trade Treaty, organised by Saferworld and the China Arms Control and Disarmament Association (CACDA). Around 70 participants attended the seminar and exchanged views on issues related to signature, ratification, and implementation of the ATT. China’s further engagement was also explored. What do you think are the ratification prospects of the ATT? How do you think the EWG could further support the UN ATT process and encourage China to remain engaged in this process?

The ATT is important to all UN Member States, and particularly so to African states, which have suffered disproportionately from the scourge of unregulated transfers of conventional arms. The EWG needs to impress upon the EU, which has shown tremendous understanding of the problem and willingness to assist, to continue offering assistance to the EWG in the treaty’s implementation phase. The EWG should embark on repackaging the ATT in such a manner that salient points are clearly brought out to assist, particularly the African states, with legislative processes. In my opinion, prospects for China ratifying ATT are about 45% at the moment, but these chances might improve after China signs the treaty. I think that the EWG should use the AU Common Position on the ATT as leverage in dialogue with China in order to keep them engaged, given China's relations with African countries.

During your stay in Beijing, you also visited nine African Embassies. What was the objective of these visits? How did the African diplomats respond?

Given the strong support for the ATT by more than four-fifths of all AU Member States, the EWG mandated one of its members, supported by a representative from the Kenya Ministry of Foreign Affairs and the China Programme Officer, to carry out a dialogue with African diplomats from Nigeria, Kenya, Uganda, Tanzania, South Sudan, Ghana, South Africa, and Senegal, all of whose Permanent Missions to the UN played key roles in the negotiations between 2006 and 2013, which led to the adoption of the Treaty text on 2 April 2013. The briefings took a three-pronged approach: familiarising African diplomats with the EWG’s activities; looking at the ATT process during the past seven years; and keeping the issue of SALW and its importance to Africa on the agenda of the Forum on China–Africa Cooperation (FOCAC). The response was encouraging: it emerged that African Ambassadors in Beijing hold regular meetings on FOCAC, and they promised to keep the matter alive. They also informed us that the next FOCAC Ministerial will be held in South Africa in 2015, and that issues concerning peace and security, and SALW in particular, will continue to feature in the discussions. The EWG will keep an eye on these encouraging trends.

What do you see as the key areas of work for the EWG going forward?

I think key areas of upcoming work involve detailed engagement on peace and security, particularly support and assistance from China and the EU to Africa; continuing work on small arms and light weapons; the ratification and implementation of the ATT; the EWG implementing its own activity plans; concerted efforts to keep the EWG members in constant communication among themselves and other key stakeholders; and very importantly, the EWG widening its contacts to include closer working relations with governments (particularly in Africa) and other intergovernmental organisations like the Regional Centre on Small Arms in the Great Lakes Region, the Horn of Africa and Bordering States (RECSA), Southern African Development Community (SADC), Economic Community Of West African States (ECOWAS), and Economic Community of Central African States (ECCAS).

What are your key concerns/what are the key issues surrounding conventional arms in relation to Europe, Africa, and China going forward?

I think that at a grassroots level, a number of African countries, particularly those emerging from conflict, are in dire need of assistance in addressing demining – this is hugely important and needs urgent action. At the same time, so many areas are important and in need of action. If you look at arms collection and safe custody; the reintegration of former combatants, particularly child soldiers; creating alternative means of livelihood after demobilization; good governance as a deterrent against the demand for small arms and light weapons… well, all of these issues are key and it is crucial that Europe and China assist African states in these areas.

Read more on the Africa-China-EU Expert Working Group and our work on Rising Powers.

“The ATT is important to all UN Member States, and particularly so to African states, which have suffered disproportionately from the scourge of unregulated transfers of conventional arms. The EWG needs to impress upon the EU, which has shown tremendous understanding of the problem and willingness to assist, to continue offering assistance to the EWG in the treaty’s implementation phase. ”

Ambassador Ochieng Adala