‘Outer Space Should Never Be an Arena for Militarization’, Delegate Tells General Assembly Debate on Moscow’s Veto of Resolution Aimed at Curbing Arms Race
With the sharp escalation of threats to security in and from outer space, a legally binding agreement to preserve its peaceful nature is pivotal, speakers told the General Assembly today, in a meeting sparked by a veto cast by the Russian Federation, blocking a draft resolution on 24 April that aimed to prevent an arms race in outer space in all its aspects, including through the obligation not to place in Earth’s orbit any objects carrying weapons of mass destruction.
The draft resolution — introduced by the United States and Japan and co-sponsored by over 60 nations — received 13 votes in favour, with China abstaining (see SC/15678 for details).
Speaking on behalf of Dennis Francis (Trinidad and Tobago), President of the seventy-eighth session of the General Assembly, Assembly Vice-President Ahmad Faisal Muhamad voiced regret that the Security Council yet again failed to find consensus on a draft resolution addressing weapons of mass destruction in outer space. “Outer space does not belong to individual nations; its peaceful and sustainable use is not subject to national appropriation and must be a place of peace and cooperation for the benefit and in the interest of all countries,” he stated, warning against its militarization.
The representative of the United States said that it should not be controversial or difficult for the Council to affirm the clear obligations of parties under the 1967 Outer Space Treaty. Voicing disappointment over the Russian Federation’s veto of the draft resolution, he highlighted Washington, D.C.’s and Tokyo’s flexible approach. By submitting its own resolution, Moscow is creating “a diplomatic façade” that hides its true intentions — “the truth is that Russia has several conventional anti-satellite weapons already in orbit.” Moreover, he said, “no one should forget Russia’s November 2021 destructive anti-satellite missile test, which created thousands of pieces of space debris, nor its ongoing jamming of communication and navigation satellites in support of its illegal war in Ukraine.” There is also credible information that Moscow is developing a new satellite carrying a nuclear device, he said, adding that its actions “only seek to divide, not unite States”.
The representative of Japan, asking those present to “imagine what would happen with a detonation of a nuclear weapon in outer space”, said that the repercussions would obstruct sustainable development in every region on Earth “disastrously and irreversibly”. The resolution drafted by Tokyo and Washington, D.C., was intended to “avoid such a nuclear catastrophe for mankind”, he stressed, expressing regret over Moscow’s veto, which casts serious doubt on its commitment to the peaceful use and exploration of outer space. Urging that preventing the placement of nuclear weapons — or any other weapons of mass destruction — in outer space must remain a priority, he underscored that this goal should be pursued by all Member States — “including the permanent member who blocked the draft resolution”.
The representative of the Russian Federation countered that the United States’ text did not address the goal declared in the title and could have entailed far-reaching consequences for the entire disarmament process. “Why were the authors trying to use the Council to reaffirm already existing internality obligations in the area of outer space exploration?” he asked, adding that the Outer Space Treaty already contains an unequivocal ban on the placement of weapons of mass destruction in outer space. Spotlighting “another dangerous element” of Washington, D.C.’s draft, he said it used the Council to introduce new restrictions that “have not been previously enshrined anywhere”.
Meanwhile, the amendment proposed by Moscow called on States to take urgent measures to fully prohibit all types of weapons in outer space — “not only weapons of mass destruction” — and, as such, was “much more far-reaching than the US draft”, he added. The military doctrines of nearly all critical Western States currently provide for the military exploration of outer space. “Make no mistake — all the statements from the Western States about their interest to maintain outer space for peaceful purposes are nothing more than hypocrisy and double standards,” he said, underscoring the need to prevent outer space from turning into “yet another arena of tensions and military confrontation”.
The representative of China, who abstained, called on the international community to preserve the peaceful nature of outer space and stressed that “the greatest challenge in outer space lies in one super-Power seeking hegemony there, defining outer space as a warfighting domain”. He, therefore, urged “that big Power” to take practical actions to safeguard peace and security in outer space. Also noting that more than 50 years have passed since the Treaty on the Prohibition of the Use of Force in Outer Space and from Space Against the Earth was concluded, he said that the instrument is “gradually becoming outdated”. As it only prohibits the placement of weapons of mass destruction in outer space — not other types of weapons — the international community should urgently negotiate and conclude a new treaty to provide a stronger institutional foundation for security in outer space. On that, he recalled that his country and the Russian Federation, as early as 2008, submitted a draft treaty to the Conference on Disarmament that could serve as a basis for future negotiations.
Numerous delegates echoed his call, with Ecuador’s representative noting the need to advance the negotiations of a legally binding agreement to preserve the peaceful nature of outer space and prevent an arms race in all its aspects. He warned that the placement of nuclear weapons or other weapons of mass destruction in outer space would have “catastrophic and unpredictable consequences” as it would put life on the planet at risk and threaten critical infrastructure in outer space.
In the same vein, the speaker for Pakistan voiced regret that there has been no progress on a treaty to prevent an arms race in outer space in over four decades. Warning against the spillover of conflicts on land, sea and air into outer space, he underscored that “threats to security in and from outer space have escalated sharply in recent years”. This is evident from the placement of weapons in space and its increasing characterization as the next war-fighting frontier in the military doctrines of major Powers. He observed that the deployment of missile defence systems and their amalgamation with outer space satellite systems reinforce offensive and defensive capabilities, with severe implications for strategic stability at the global and regional levels.
Also underlining the need to strengthen the current legal framework and develop norms to prevent potential conflicts in space, Ghana’s delegate urged the clarification of dual-use space capabilities that blur the distinction between peaceful and military applications. Rejecting all notions that justify the weaponization of outer space, he underscored that “outer space should never be an arena for militarization, whether in testing weapons, conducting military exercises or installing nuclear or other weapons of mass destruction”.
Expressing concern that no concrete progress in preventing an arms race in outer space has been achieved since the 1978 special session of the General Assembly on disarmament, Brazil’s delegate said this crucial issue is now the object of “a decades-long deadlock”. He added that the 24 April Council debate made evident the harmful logic that has impeded progress in this regard both in the Conference on Disarmament and the General Assembly. “It made even more evident that there is no shortcut for this discussion,” he pointed out. Either all parties engage in serious negotiations that consider the security concerns of all States, or the international community risks continuous failure and a downward spiral towards a severe deterioration of the security environment in outer space, he underscored.
The representative of Iran stated that the Conference on Disarmament is the appropriate forum to begin negotiating a treaty to prevent an arms race in outer space. However, the draft resolution introduced by the United States and Japan in the Council did not reflect the positions of all Member States, he said. Further, the United States did not accept the amendment proposed by China and the Russian Federation to address shortcomings in the draft. Against that backdrop, he stressed that if the United States values addressing the weaponization of outer space it “should refrain from singlehandedly impeding progress within UN disarmament machinery on this front”. He added that the United States views outer space as a potential battleground, evidenced by its establishment of a “Space Force”.
The representative of the European Union, in its capacity as observer, emphasized that the Russian Federation’s veto does not relieve it of its obligations under international law. The Treaty on the Prohibition of the Use of Force in Outer Space and from Space Against the Earth and other applicable international law “are the cornerstone of the global governance of outer space”, she emphasized, calling on all parties to “act in line with the longstanding common objective of preventing an arms race in outer space”. Expressing concern over the “multiplication of ambiguous, unfriendly or hostile activities in outer space”, she reported that the bloc actively promotes a safe, secure and sustainable space environment and the peaceful use of outer space on an equitable and mutually acceptable basis for all.
The speaker for Germany, associating herself with the European Union, said that, if adopted, the resolution would have advanced the vital interests that unite all humankind “to prevent space from becoming a theatre of war”. Moscow’s proposal for an amendment deliberately ignored the fact that no definition of weapons in outer space exists and, thereby, no international agreement around that concept is within reach. Almost any space object can have both civilian and military use, she observed, noting the need to focus on norms of responsible behaviour when governing space security. As demonstrated by its illegal war against Ukraine and its recent cyberattacks against Germany, Moscow is systematically undermining the Charter of the United Nations, international law and the existing arms control architecture, she stressed.
The representative of Luxembourg, also speaking for Belgium and the Netherlands, expressed regret that the Russian Federation vetoed a resolution that had received cross-regional support from over 60 Member States. With its veto, it “blocked an important step on the way towards a safe, secure, stable and sustainable outer space, which is of vital importance for everybody”, he said. Observing that outer space is “quickly becoming increasingly cluttered and contested”, he stressed that preventing an arms race there is more critical than ever. Ongoing discussions in New York and Geneva have demonstrated Member States’ significant interest in finding convergence towards this goal, and he said that “political commitments on responsible behaviour can be established to underpin this”. These can exist without prejudice to seeking legally binding instruments, he added, noting that “these approaches are not mutually exclusive”.
The representative of New Zealand, speaking on behalf of a group of Member States, described the veto as “the most undemocratic element of the UN” which stymies the majority of the Council from carrying out its functions on behalf of the wider UN membership. A peaceful, sustainable and secure space environment is essential, she said, noting that space-enabled capabilities allow States to respond to crises and emergencies, such as extreme weather events and other natural hazards worldwide. If adopted, the resolution would have contributed to preventing an arms race in outer space, she added.
The representative of Morocco said that it is “timely” to pursue discussions on the regulation of State behaviour in outer space, as anarchy in such a complex arena could trigger large-scale conflict. Such regulation should “prioritize the peaceful settlement of disputes and provide a diplomatic deterrent against aggressive or irresponsible behaviour”, he said. Turning to national efforts, he recalled that his country launched two satellites into orbit, one in 2017 and another in 2018. This achievement — in addition to the national strategic development plan — demonstrates that Morocco has turned space technology into a “genuine asset and driver” for national socioeconomic and sustainable development. Further, on a regional level, Morocco cooperates with African States to strengthen their capacity in this area — including through support to the African Regional Centre for Space Science and Technology, affiliated with the UN and located in Rabat.
For his part, the representative of the United Arab Emirates observed that increasing divisions in the Council — especially among permanent members — undermine collective efforts to maintain international peace and security, urging the wider UN membership to strengthen cooperation on this “vital new horizon for international peace”. If the Council were to consider another resolution on this issue, such a text should be adopted unanimously; reaffirm all Member States’ rights to peacefully use and explore outer space; and be complementary to existing efforts in other forums. Collective efforts would be better focused on what this new arena has to offer — “an unparalleled opportunity to harness human ingenuity, curiosity and international cooperation”, he said, stating: “While peace and security often remain elusive on Earth, we have the chance to get it right in outer space from the start”.