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UNSCR 1540 Implementation: Challenges Past and Present

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Abstract

This chapter seeks to set out the principal challenges in the implementation of resolution 1540. Using evidence from the resolutions, meeting records, Committee Chair’s briefings, and secondary sources, it argues that the challenges to implementation of the resolution have reflected both broader conceptual issues, and, more recently, practical implementation issues. The chapter begins by considering ‘broader challenges’ to the resolution’s implementation, notably those relating to political will. The second section considers challenges that are more practical in nature. The chapter will conclude with a final section looking at some opportunities that may help to overcome these challenges.

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Notes

  1. 1.

    United Nations, ‘Charter of the United Nations’, article 24. Available at: <http://www.un.org/en/documents/charter/index.shtml> (Accessed 12 December 2014).

  2. 2.

    Talmon, S., ‘The Security Council as World Legislature’, The American Journal of International Law, Vol. 99, No. 1 (2005), p. 172, p. 9.

  3. 3.

    United Nations, ‘Charter of the United Nations’, article 39.

  4. 4.

    United Nations, Security Council Resolution 1373, 28 September 2001. Available at: <http://www.un.org/en/sc/ctc/specialmeetings/2012/docs/United%20Nations%20Security%20Council%20Resolution%201373%20(2001).pdf> (Accessed 12 December 2014).

  5. 5.

    Talmon, S., ‘The Security Council as World Legislature’, p. 176.

  6. 6.

    Record of UN Security Council 4950th meeting, Thursday, 22 April 2004, S/PV.4950, p. 23. Available at: <http://www.securitycouncilreport.org/atf/cf/%7B65BFCF9B-6D27-4E9C-8CD3-CF6E4FF96FF9%7D/Chap%20VII%20SPV%204950.pdf> (Accessed 12 December 2014).

  7. 7.

    United Nations, ‘Charter of the United Nations’, article 23.

  8. 8.

    Bergenäs, J., ‘The Slippery Slope of Rational Inaction’, Nonproliferation Review, Vol. 15, No. 2 (2008), p. 380.

  9. 9.

    Cupitt, R., ‘Capstone and Mortar: Notes on the Creation of UNSCR 1540’, p. 10.

  10. 10.

    Statement of the representative of the Philippines Record of UN Security Council 4950th meeting, Thursday, 22 April 2004, S/PV.4950, p. 24.

  11. 11.

    Statement of the representative of India, Record of UN Security Council 4950th meeting, Thursday, 22 April 2004, S/PV.4950, p. 24.

  12. 12.

    Statement of the representative of Pakistan, Record of UN Security Council 4950th meeting, Thursday, 22 April 2004, S/PV.4950, p. 15.

  13. 13.

    Twenty-fourth Ministerial Conference of the Non-Aligned Movement, Final Document, 2004, para. 93., cited in Lawrence Scheinman ed. Implementing Resolution 1540: The role of regional organisations (UNIDIR: 2008) p. 96.

  14. 14.

    United Nations, ‘Charter of the United Nations’, articles 40, 42 and 43.

  15. 15.

    Talmon, S., ‘The Security Council as World Legislature’, p. 184.

  16. 16.

    These points were made by states including Algeria and Brazil. See Record of UN Security Council 4950th meeting, Thursday, 22 April 2004, S/PV.4950, pp. 4–5. In full, Article 25 of the Charter reads: ‘The Members of the United Nations agree to accept and carry out the decisions of the Security Council in accordance with the present Charter’. United Nations, ‘Charter of the United Nations’, article 25.

  17. 17.

    Cupitt, R., ‘Capstone and Mortar: Notes on the Creation of UNSCR 1540’, p. 11.

  18. 18.

    Remarks of the representative of South Africa, Record of UN Security Council 4950th meeting, Thursday, 22 April 2004, S/PV.4950, p. 22.

  19. 19.

    ‘National report submitted by the Republic of South Africa to the Security Council Committee established pursuant to Security Council resolution 1540 (2004): Implementation of operative paragraphs 1 to 3 and 6 to 10 of resolution 1540 (2004)’, 01 February 2005, S/AC.44/2004/(02)/102, p. 2.

  20. 20.

    Example provided by Cole J Harvey, ‘Two Steps Forward, One Step Back: Slow, But Steady Progress Implementing UNSCR 1540’, NTI Website Analysis, 20 July 2011.

  21. 21.

    Record of UN Security Council 4950th meeting, Thursday, 22 April 2004, S/PV.4950.

  22. 22.

    United Nations, General Assembly Resolution 57/83, adopted 09 January 2003.

  23. 23.

    Talmon, S., ‘The Security Council as World Legislature’, p. 188/189.

  24. 24.

    Appropriate 13 times, and effective 11 times. United Nations, Security Council Resolution 1540, 28 April 2004.

  25. 25.

    United Nations, Security Council Resolution 1540, 28 April 2004, article 4.

  26. 26.

    ‘The 1540 Matrix’, website of the 1540 Committee. Available at: <www.un.org/en/sc/1540/national-implementation/matrix.shtml>.

  27. 27.

    ‘Briefing by the Chair of the Security Council Committee established pursuant to resolution 1540 (2004) (20 July 2005)’, 20 July 2005. Available at: <http://www.un.org/en/sc/1540/reports-and-briefings/pdf/statement.chair.SC.20jul05.pdf> (Accessed 12 December 2014).

  28. 28.

    ‘1540 Matrix’, UN 1540 Committee website. Available at: <http://www.un.org/en/sc/1540/national-implementation/matrix.shtml> (Accessed 12 December 2014).

  29. 29.

    ‘The 1540 Matrix’, website of the 1540 Committee. Available at: <www.un.org/en/sc/1540/national-implementation/matrix.shtml> (Accessed 12 December 2014).

  30. 30.

    UN Security Council 1540 Committee, ‘Final document on the 2009 comprehensive review of the status of implementation of Security Council resolution 1540 (2004): Key findings and recommendations’, S/2010/52, 01 February 2010, p. 3, <http://www.securitycouncilreport.org/atf/cf/%7B65BFCF9B-6D27-4E9C-8CD3-CF6E4FF96FF9%7D/Terrorism%20S%202010%2052.pdf>.

  31. 31.

    ‘Briefing by the Chair of the Security Council Committee established pursuant to resolution 1540 (2004) (26 October 2005)’, 26 October 2005. Available at: <http://www.un.org/en/sc/1540/reports-and-briefings/pdf/statement.chair.SC.26oct05.pdf> (Accessed 12 December 2014).

  32. 32.

    United Nations, Security Council Resolution 1810, 25 April 2008.

  33. 33.

    Talmon, S. ‘The Security Council as World Legislature’ p. 191.

  34. 34.

    Statement of the representative of Cuba Record of UN Security Council 4950th meeting, Thursday, 22 April 2004, S/PV.4950, p. 30.

  35. 35.

    Cupitt, R., ‘Nearly at the Brink: The Tasks and Capacity of the 1540 Committee’.

  36. 36.

    Cupitt, R., ‘Nearly at the Brink: The Tasks and Capacity of the 1540 Committee’.

  37. 37.

    Heupel, M., ‘Combining Hierarchical and Soft Modes of Governance: The UN Security Council’s Approach to Terrorism and Weapons of Mass Destruction Proliferation after 9/11’, Cooperation and Conflict, Vol. 543, No. 1, pp. 7–29.

  38. 38.

    ‘Record of Comments: Country Group C: Destinations of Diversion Concern’ responses to request for comment in the Federal Register, Vol. 72, No. 37. Available at: <http://efoia.bis.doc.gov/index.php/component/docman/doc_view/721-country-group-c?Itemid=526> (Accessed via a FOI request 26 February 2007); Dunne, A. (2012) ‘Strategic Trade Controls In the United Arab Emirates: Key Considerations for The European Union’, Non-Proliferation Paper, EU Non-Proliferation Consortium, No. 12, March 2012.

  39. 39.

    ‘Transhipment and Diversion: Are U.S. Trading Partners Doing Enough to Prevent the Spread of Dangerous Technologies?’ Hearing before the Subcommittee on Terrorism, Non-proliferation and Trade of the Committee on Foreign Affairs, House of Representatives, 22 July 2010.

  40. 40.

    Cupitt, R., ‘Capstone and Mortar: Notes on the Creation of UNSCR 1540’.

  41. 41.

    The resolutions which changed the Committee’s role in a significant manner include 1673 (2006), 1810 (2008), and 1977 (2011).

  42. 42.

    United Nations, ‘Security Council Resolution 1540’, 28 April 2004.

  43. 43.

    United Nations, ‘Security Council Resolution 1673’, 27 April 2006.

  44. 44.

    ‘Talking Points for the Joint Briefing by the Security Council Committees established pursuant to Resolutions 1267 (1999), 1373 (2001) and 1540 (2004) to the Security Council’, 22 May 2007. Available at: <http://www.un.org/en/sc/1540/reports-and-briefings/pdf/statement.chair.SC.22may07.pdf> (Accessed 12 December 2014).

  45. 45.

    ‘Briefing by the Chair of the Security Council Committee established pursuant to resolution 1540 (2004) (17 Dec 2007)’ Chair’s briefing, 17 December 2007. Available at: <http://www.un.org/en/sc/1540/reports-and-briefings/pdf/statement.chair.SC.17dec07.pdf> (Accessed 12 December 2014).

  46. 46.

    United Nations, ‘Security Council Resolution 1810’, 25 April 2008.

  47. 47.

    ‘Briefing by the Chair of the Security Council Committee established pursuant to resolution 1540 (2004) (26 October 2005)’, 26 October 2005. Available at: <http://www.un.org/en/sc/1540/reports-and-briefings/pdf/statement.chair.SC.26oct05.pdf> (Accessed 12 December 2014).

  48. 48.

    United Nations, ‘Security Council Resolution 1977’, 20 April 2011, clauses 13–17.

  49. 49.

    United Nations, ‘Security Council Resolution 1977’.

  50. 50.

    Cupitt, R., ‘Nearly at the Brink: The Tasks and Capacity of the 1540 Committee’.

  51. 51.

    ‘Briefing by the Chair of the Security Council Committee established pursuant to resolution 1540 (2004) (20 July 2005)’, 20 July 2005. Available at: <http://www.un.org/en/sc/1540/reports-and-briefings/pdf/statement.chair.SC.20jul05.pdf> (Accessed 12 December 2014).

  52. 52.

    United Nations, ‘Security Council resolution 1673’, clause 4.

  53. 53.

    United Nations, ‘Security Council resolution 1977’, 20 April 2011, clause 5.

  54. 54.

    United Nations, ‘Security Council resolution 2055’, 29 June 2012. Although, as of January 2018, the Panel had just three members.

  55. 55.

    ‘Briefing by the Chair of the Security Council Committee established pursuant to resolution 1540 (2004) (26 October 2005)’, 26 October 2005. Available at: <http://www.un.org/en/sc/1540/reports-and-briefings/pdf/statement.chair.SC.26oct05.pdf> (Accessed 12 December 2014).

  56. 56.

    ‘Briefing by the Chair of the Security Council Committee established pursuant to resolution 1540 (2004) (26 October 2005)’.

  57. 57.

    ‘Briefing by the Chair of the Security Council Committee established pursuant to resolution 1540 (2004) (30 May 2006)’, 30 May 2006. Available at: <http://www.un.org/en/sc/1540/reports-and-briefings/pdf/statement.chair.SC.30may06.pdf>; ‘Briefing by the Chair of the Security Council Committee established pursuant to resolution 1540 (2004) (14 Nov 2007)’, 14 November 2007. Available at: <http://www.un.org/en/sc/1540/reports-and-briefings/pdf/statement.chair.SC.14nov07.pdf> (Accessed 12 December 2014).

  58. 58.

    ‘Briefing by the Chair of the Security Council Committee established pursuant to resolution 1540 (2004) (26 October 2005)’.

  59. 59.

    ‘Briefing by the Chair of the Security Council Committee established pursuant to resolution 1540 (2004) (14 Nov 2007)’.

  60. 60.

    ‘Briefing by the Chair of the Security Council Committee established pursuant to resolution 1540 (2004) (17 December 2007)’, 17 December 2007. Available at: <http://www.un.org/en/sc/1540/reports-and-briefings/pdf/statement.chair.SC.17dec07.pdf> (Accessed 12 December 2014).

  61. 61.

    ‘Specific Element (d)’, Background paper prepared by the 1540 Committee Experts for the Comprehensive Review, 2009, p. 2.

  62. 62.

    ‘Briefing by the Chair of the Security Council Committee established pursuant to resolution 1540 (2004) (21 February 2006)’, 21 February 2006. Available at: <http://www.un.org/en/sc/1540/reports-and-briefings/pdf/statement.chair.SC.21feb06.pdf>; ‘Legislative Database: General Information’, 1540 Committee website. Available at: <http://www.un.org/en/sc/1540/national-implementation/legislative-database/general-information.shtml> (Both Accessed 29 July 2014).

  63. 63.

    Beck, M. ‘Implementation Challenges for Small and Developing Countries’, 1540 Compass, Issue 4 (2013) p. 12.

  64. 64.

    The Committees set up by UNSCRs 1267 (1999 on Al Qaeda and the Taliban) and 1373 (Terrorism) are referenced in UNSCR 1810 (2008) which ‘Reiterates the need to enhance ongoing cooperation between the 1540 Committee’ and these bodies. United Nations, Security Council Resolution 1810, 25 April 2008.

  65. 65.

    United Nations, ‘Security Council Resolution 1977’, 20 April 2011, clause 18.

  66. 66.

    For a more extensive discussion of difficulties see Salisbury, D. ‘Trade Controls and Non-proliferation: Compliance Costs, Drivers and Challenges’, Business and Politics, Vol. 15, No. 4 (2013), pp. 529–551.

  67. 67.

    Bergenäs, J., ‘The Slippery Slope of Rational Inaction’, p. 374.

  68. 68.

    Bergenäs, J. ‘The Slippery Slope of Rational Inaction’, p. 374.

  69. 69.

    ‘Transhipment and Diversion: Are U.S. Trading Partners Doing Enough to Prevent the Spread of Dangerous Technologies?’ Hearing before the Subcommittee on Terrorism, Non-proliferation and Trade of the Committee on Foreign Affairs, House of Representatives, 22 July 2010.

  70. 70.

    See for example Crail, P. ‘Implementing UN Security Council Resolution 1540’, The Nonproliferation Review, Vol. 13, No. 2, pp. 355–399.

  71. 71.

    United Nations, Security Council Resolution 1540, 28 April 2004.

  72. 72.

    See for example ‘Joint Statement on Promoting Full and Universal Implementation of United Nations Security Council Resolution 1540 (2004)’, March 2014. Available at: <https://www.nss2014.com/sites/default/files/documents/joint_statement_on_unscr_1540_-_final_version_24_march2.pdf> (Accessed 29 July 2014).

  73. 73.

    See for example, Findlay, B., ‘Foreword’ in Findlay, B. ed. Southern Flows: WMD Non-proliferation in the Developing World (The Stanley Foundation & Stimson: 2014) p. 5.

  74. 74.

    Findlay, B. and Bergenas, J., ‘Courting the Global South with “Dual-benefit” Non-proliferation Engagement’, The Nonproliferation Review, Vol. 20, No. 1 (2013), pp. 165–172.

  75. 75.

    Findlay, B., ed. Southern Flows: WMD Non-proliferation in the Developing World.

  76. 76.

    Albright, D. and Gray, P., ‘Building a Corporate Non-proliferation Ethic’, ISIS Report, June 1993. Available at: <http://isis-online.org/uploads/isis-reports/documents/ISIS_Report_Building_a_Corp_Nonprolif_Ethic_1.pdf> (Accessed 29 July 2014).

  77. 77.

    United Nations, ‘Security Council Resolution 1540’, 28 April 2004, clause 8.d.

  78. 78.

    United Nations, ‘Security Council Resolution 1977’, 20 April 2011.

  79. 79.

    Schneider, C. ‘Report on Conference of International, Regional and Sub-regional Industry Associations on UNSCR 1540’, 1540 Compass, Issue 2 (Summer 2012), pp. 42–44.

  80. 80.

    Salisbury, D. ‘How the Private Sector can do More to Prevent Illicit Trade’, Arms Control Today, July/August 2013.

  81. 81.

    See for example, Salisbury, D., ‘Trade Controls and Non-proliferation: Compliance Costs, Drivers and Challenges’; ‘Number 7: Nuclear Security Culture’, International Atomic Energy Agency Nuclear Security Series Implementing Guide, 2008. Available at: <http://www-pub.iaea.org/MTCD/publications/PDF/Pub1347_web.pdf> (Accessed 29 July 2014).

  82. 82.

    Khripunov, I. ‘A Work in Progress: UN Security Council Resolution 1540 After 10 Years’, Arms Control Today, May 2014.

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  1. Belfer Center for Science and International Affairs, Harvard Kennedy School, Cambridge, MA, USA

    Daniel Salisbury

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  1. Belfer Center for Science and International Affairs, Harvard Kennedy School, Cambridge, MA, USA

    Daniel Salisbury

  2. War Studies Department, King’s College London, London, United Kingdom

    Ian J. Stewart

  3. War Studies Department, King’s College London, London, United Kingdom

    Andrea Viski

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Salisbury, D. (2018). UNSCR 1540 Implementation: Challenges Past and Present. In: Salisbury, D., Stewart, I., Viski, A. (eds) Preventing the Proliferation of WMDs. Palgrave Pivot, Cham. https://doi.org/10.1007/978-3-319-72203-0_5

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