Weapon Transfers Must Comport with International Law, Senior UN Official Tells Security Council, Urging Cooperation to Reduce Illicit Arms Flows
Speakers Spotlight West’s Support of Kyiv, Pyongyang’s Transfers to Moscow
The large-scale influx of weapons and ammunition into any armed conflict raises significant concerns for peace and security, a senior United Nations official warned the Security Council today, as delegates highlighted the risks associated with both Western arms supplies to Ukraine and Pyongyang’s unlawful arms transfers to the Russian Federation.
Painting a grim picture of death, destruction and unbearable suffering, Adedeji Ebo, Deputy to the High Representative of the United Nations Office for Disarmament Affairs, reported that 10,287 civilians have been killed and 19,444 injured over the past 23 months. These casualties were verified by the Office of the United Nations High Commissioner for Human Rights (OHCHR), but the actual figures are likely to be considerably higher, he noted.
Spotlighting the issue of Western arms supplies to the Ukrainian Armed Forces, he said that the provision of military assistance has included the transfer of heavy conventional weapons, as well as remotely operated munitions, small arms and light weapons and their ammunition. In addition, there have been reports of States transferring — or planning to transfer — weapons such as uncrewed aerial vehicles, ballistic missiles and ammunition to the Russian Federation Armed Forces.
Any transfer of weapons must occur within the applicable international legal framework, he emphasized, expressing concern over reports related to the transfer and use of cluster munitions throughout the conflict — weapons which “must be rendered inoperable and consigned to history”. Moreover, mines and explosive remnants of war have resulted in widespread land contamination. Underlining the importance of strong international cooperation to reduce illicit arms flows, he urged States to avoid the use of explosive weapons in populated areas and fully implement their legal obligations under conventional-arms-control instruments.
When the floor opened for discussion, numerous delegates voiced concern over the military cooperation between the Russian Federation and the Democratic People’s Republic of Korea. Many also pledged to continue providing military equipment to Ukraine in support of its right to self-defence. However, others cautioned that Western arms transfers to Ukraine are prolonging the war and undermining efforts to resolve the conflict.
Sergey V. Lavrov, Minister for Foreign Affairs of the Russian Federation, cited the West’s continued support for the Kyiv regime as the “key impediment” to a peaceful settlement of the Ukrainian crisis. Reiterating his country’s readiness to negotiate a solution, he stressed that the peace formulas proposed by Kyiv have nothing to do with peace and, instead, serve as cover to continue the war and flow of money from Western taxpayers. Rejecting claims from Washington, D.C., that his country would attack Poland, the Baltic States and Finland after Ukraine, he said: “There’s a lot of things that you can think of if you want to get money out of Congress.”
Countering that view — and recalling Moscow’s recent shelling of more than 100 Ukrainian cities and villages — the representative of Ukraine said that transfers of weapons and military equipment to Moscow — particularly from Tehran and Pyongyang — continue to fuel the conflict and multiply civilian casualties. Despite an increase in the number of attacks by the Russian Federation, he credited the decrease in victims to strengthened air defence provided by allies and evacuation measures implemented by Ukrainian authorities. Turning to Moscow’s strong opposition to Ukraine’s peace formula, he said that, from the Kremlin’s perspective, achieving peace in the current war risks “losing Ukraine”.
The ongoing flow of weapons reflects the prevailing military mindset among the belligerents, observed the representative of Mozambique, noting that military solutions often perpetuate a vicious cycle of bloodshed. Experiences from Africa underscore that military victories are often pyrrhic, he added. Detailing the conflict’s palpable repercussions in Africa, he said that the crisis in Ukraine is impacting socioeconomic systems on the continent and beyond.
Also spotlighting the war’s effects elsewhere, the representative of the Republic of Korea warned that “the introduction of North Korean missiles into the war in Ukraine has a significant implication on global nuclear non-proliferation as well as on the Korean Peninsula”. Moscow’s use of Pyongyang’s weapons directly violates multiple Council resolutions, he observed, noting that these military transactions generate revenue that the latter can use to further develop its illegal missile programmes.
The representative of the United States echoed those concerns, warning that these unlawful transfers undermine both regional stability and the global non-proliferation regime. Calling on Moscow to immediately withdraw its forces from Ukraine’s territory, he declared: “Russia can end this war today but, until it chooses to do so, the international community must continue to support Ukraine.”
The representative of China, meanwhile, underscored that “no country may attempt to secure itself at the expense of another country’s security” and that regional security cannot be guaranteed by “muscling-up or even expanding a military bloc”. Highlighting, in this regard, the consequences of expansion by the North Atlantic Treaty Organization (NATO), he called on the organization to “learn its lessons”. He further noted that “peace cannot be achieved by feeding weapons into the battlefield”.
“War has no place in the world in [the] twenty-first century,” said the representative of Guyana, who warned that “the supply of weapons and ammunition into any armed-conflict situation has the potential to further escalate or prolong the violence and risks of diversion”. Highlighting the vast scale of current humanitarian need in Ukraine, she also stressed that the longer the war continues, the greater the risks for global peace and security.
THREATS TO INTERNATIONAL PEACE AND SECURITY
Briefing
ADEDEJI EBO, Deputy to the High Representative of the United Nations Office for Disarmament Affairs, briefing the Council on behalf of the High Representative, noted that 23 months of death, destruction and unbearable suffering have passed since the Russian Federation launched its full-scale invasion of Ukraine. Over the last months, the provision of military assistance and transfers of arms and ammunition to the Ukrainian Armed Forces have continued. Such transfers have included heavy conventional weapons such as battle tanks, armoured combat vehicles, combat aircraft, helicopters, large-calibre artillery systems, missile systems and uncrewed aerial combat vehicles, as well as remotely operated munitions, small arms and light weapons and their ammunition. In addition, there have been reports of States transferring — or planning to transfer — weapons such as uncrewed aerial vehicles, ballistic missiles and ammunition to the Russian Federation Armed Forces. There are also reports that these weapons have been used in Ukraine.
However, he emphasized that any transfer of weapons must occur within the applicable international legal framework, including relevant Council resolutions. Expressing concern over reports related to the transfer and use of cluster munitions throughout the conflict, he stressed that “these weapons must be rendered inoperable and consigned to history”. Moreover, mines and explosive remnants of war have resulted in widespread land contamination, rendering land unusable for agriculture and impeding the movement of people in Ukraine. “The large-scale influx of weapons and ammunition into any armed conflict raises significant concerns for peace, security and stability,” he warned, underscoring the need to address challenges related to the diversion, proliferation and misuse of conventional weapons. Noting that a significant reduction in illicit arms flows can only be effectively achieved through strong international cooperation, he spotlighted instruments — such as the Arms Trade Treaty — that should be fully leveraged to address the risks of diversion and illicit trafficking.
Accordingly, he called on all States to join relevant agreements, and fully implement their legal obligations under conventional-arms-control instruments to which they are party, to minimize the risk of diversion, illicit trafficking and misuse of arms and ammunition. Further, States must avoid the use of explosive weapons in populated areas, as such use is highly likely to result in indiscriminate harm to civilians — including in both Ukraine and the Russian Federation. He also called on all Member States to endorse and implement the Political Declaration on Strengthening the Protection of Civilians from the Humanitarian Consequences Arising from the Use of Explosive Weapons in Populated Areas. Describing the steady stream of attacks against civilian populations and infrastructure as “seriously distressing”, he highlighted the “unambiguous obligation” of parties to any armed conflict to protect civilians and ensure compliance with applicable international law.
He went on to report that, from 24 February 2022 to 21 January 2024, the Office of the United Nations High Commissioner for Human Rights (OHCHR) has verified 29,731 civilian casualties in Ukraine, with 10,287 killed and 19,444 injured. The actual figures are likely to be considerably higher. Regrettably, the use of armed uncrewed aerial vehicles and missiles impacting civilian populations and infrastructure continues, resulting in deaths and injuries. Just like any other weapon systems, armed uncrewed aerial vehicles and missiles must not be used in a manner inconsistent with international humanitarian law, he asserted, adding that “the only way to end the suffering and devastation is by ending this war”.
Statements
SERGEY V. LAVROV, Minister for Foreign Affairs of the Russian Federation, said that most unbiased experts see clearly that the West’s continued support for the Kyiv regime is the key impediment to a peaceful settlement of the Ukrainian crisis. Underscoring that the West cannot inflict strategic defeat on his country, he pointed out that Kyiv’s Western patrons are pushing Ukraine to continue a senseless military confrontation under the false pretext that the Russian Federation aims to subjugate Ukraine. Such statements contain “not an iota of truth”, he stressed. The Russian Federation initiated its special military operation in February 2022 not against Ukraine or its people, but to address the actions of an overzealous criminal regime acting with impunity against its citizens in south and south-east Ukraine and against Russian-speaking Ukrainians.
He went on to observe that 90 per cent of the American military budget given to the Kyiv regime remains in the United States, being used to both develop that country’s military industry and update its weaponry. The old junk is being used in Ukraine, he said, adding that Washington, D.C., is not only waging war against the Russian Federation, but is also seeking to drastically weaken Europe as an economic competitor. He then warned that Western weapons are being diverted to the black market and terrorist groups, which is causing instability. United States M16 rifles can be purchased by anyone on the Internet in exchange for cryptocurrency, he added.
United States leadership even went so far as to say that the Russian Federation would attack Poland, the Baltic States and Finland after Ukraine, he said. “There’s a lot of things that you can think of if you want to get money out of Congress,” he emphasized. Moscow is always ready to negotiate a solution, but the peace plans and formulas proposed by Kyiv have nothing to do with peace. Rather, they are only used as cover to continue the war and flow of money from Western taxpayers. Unfortunately, the United Nations Secretariat is risking its reputation when it participates in the so-called Copenhagen format. All these formulas are a road to nowhere, he said, concluding that the sooner Washington, D.C., London, Paris and Brussels realize this, the better for Ukraine and the West.
VANESSA FRAZIER (Malta) condemned the Russian Federation’s ongoing campaign of systematic air strikes against civilian targets and critical infrastructure in Ukraine. “These attacks must stop,” she stressed, observing that the number of civilians killed since February 2022 has risen to over 10,200. She called for an immediate end to the use of anti-personnel landmines and cluster munitions in Ukraine, which have lasting and devastating impacts on innocent civilians long after a conflict ends. The Russian Federation’s aggression has not only exposed millions of Ukrainians to increased risks of gender-based violence, trafficking and exploitation, but also to other serious protection risks such as psychological trauma, she said. “Ukraine has the inherent right to defend itself,” she underscored, reiterating the call for Moscow to end its hostilities and withdraw from Ukrainian territory.
ZHANG JUN (China) said that, given increasing global instability, ending the Ukraine crisis and restoring peace is needed “more urgently than ever”. Noting that all parties should work harder towards this end, he stressed that States’ sovereignty and territorial integrity must be respected and that “no country may attempt to secure itself at the expense of another country’s security”. Moreover, regional security cannot be guaranteed by “muscling-up or even expanding a military bloc”, he emphasized, highlighting the consequences of expansion by the North Atlantic Treaty Organization (NATO). “NATO shall learn its lessons,” he asserted, underlining the need to take the security concerns of the Russian Federation and Ukraine seriously. However, he stressed that “peace cannot be achieved by feeding weapons into the battlefield”, calling for the protection of civilian populations and infrastructure. “The world cannot afford to see further spreading of geopolitical clashes,” he added.
CAROLYN RODRIGUES-BIRKETT (Guyana) warned that “the supply of weapons and ammunition into any armed-conflict situation has the potential to further escalate or prolong the violence and risks of diversion”. The only effective means of preventing further escalation or instability in Ukraine and the broader region is to end the war and, the longer it continues, the greater the risks for global peace and security. She also pointed out that the scale of current humanitarian needs in Ukraine remains vast, with more than 14 million people in need of multisectoral humanitarian assistance. Equally alarming is the fact that 4 million people — including nearly 1 million children — are still displaced within Ukraine, while over 6 million continue to live as refugees in neighbouring and other countries. Calling on the international community to scale up humanitarian support, she stressed that “war has no place in the world in [the] twenty-first century”.
JOONKOOK HWANG (Republic of Korea) said that the United Nations and its principles have been under attack since the Russian Federation began its illegal armed invasion of Ukraine. Short-range ballistic missiles supplied by the Democratic People’s Republic of Korea to the Russian Federation hit Ukraine on 30 December, 2 January and 6 January, he recalled, warning that “the introduction of North Korean missiles into the war in Ukraine has a significant implication on global nuclear non-proliferation as well as on the Korean Peninsula”. Emphasizing that Moscow’s use of Pyongyang’s weapons directly violates multiple Council resolutions, he added that these military transactions generate revenue that the Democratic People’s Republic of Korea can use to further develop its illegal missile programmes. The recent visit of Pyongyang’s Minister for Foreign Affairs to Moscow is alarming and indicates an interest in continuing military cooperation – which Seoul condemns, he said.
ROBERT A. WOOD (United States) emphasized that the Russian Federation is using the Council as a platform to spread its blatant disinformation. Moscow’s invasion of Ukraine is a violation of the UN Charter and international law, and no amount of conspiracy theories can change this fact. Describing this meeting as “another effort of the Russian Federation to distract from its war crimes”, he spotlighted Moscow’s use of ballistic missiles obtained from the Democratic People’s Republic of Korea in violation of Council resolutions. These unlawful transfers of arms and technology undermine regional stability and the global non-proliferation regime, he warned, urging that any country that undermines its obligations under Council resolutions must be held to account. “Russia can end this war today but, until it chooses to do so, the international community must continue to support Ukraine,” he said, calling on Moscow to immediately withdraw its forces from Ukraine’s territory.
DOMINGOS ESTÊVÃO FERNANDES (Mozambique) expressed concern that the ongoing flow of weapons reflects the prevailing military mindset among the belligerents. History has consistently demonstrated that military solutions seldom lead to lasting peace and often perpetuate a vicious cycle of bloodshed and humanitarian disaster. Experiences from Africa underscore that military victories are often pyrrhic, he emphasized. As the new year commenced, the international community harboured hopes for a course correction towards de-escalation but, unfortunately, 2024 has witnessed heightened turmoil worldwide. The repercussions of the conflict are palpable in Africa, presenting significant challenges to implementing the African Union’s “Silencing the Guns” initiative. Further, the crisis is impacting socioeconomic systems in Africa and beyond, disruptions in energy supplies have resulted in increased costs globally and supply-chain breakdowns and trade stoppages are affecting industries worldwide. African economies are also grappling with market volatility and currency fluctuations, he added.
SAMUEL ZBOGAR (Slovenia), expressing deep concern over the military cooperation between the Russian Federation and the Democratic People’s Republic of Korea, said these actions constitute serious violations of multiple Council resolutions. As the Russian Federation continues waging a war of aggression against its neighbour, Slovenia will be providing military equipment with the sole purpose of helping Ukraine protect its citizens and defend itself on its own territory in accordance with its right to self-defence. Urging the Russian Federation to stop its aggression, he reminded Moscow of its call against double standards. To that end, he emphasized that the same principles of international law applied by the Russian Federation to the situation in Gaza are equally applicable to the situation in Ukraine.
MICHAEL IMRAN KANU (Sierra Leone) urged the parties to the conflict, as well as those otherwise involved, to take meaningful steps towards the immediate cessation of hostilities and to engage in diplomatic efforts to resolve the conflict. “The war in Ukraine has been going on for almost two years without an end in sight and a seeming military stalemate,” he observed, pointing to Moscow’s claim that Western arms transfers to Ukraine are prolonging the war and undermining efforts to resolve the conflict. He also echoed some Council members’ claims that the Russian Federation is receiving arms from sanctioned States. As demonstrated by the increased death toll and massive destruction of civilian infrastructure in Ukraine, the supply of weapons to any armed conflict risks escalation and diverts resources from socioeconomic development. In this context, he reiterated that any transfer of weapons must occur within the applicable international legal framework.
JOSÉ JAVIER DE LA GASCA (Ecuador), stressing that occupation and armed violence in Ukraine contribute to severe human-rights violations, highlighted a concerning increase in civilian casualties due to intensified missile and drone attacks by the Russian Federation in late 2023 and early 2024. Reaffirming every nation’s inherent right to self-defence, he nevertheless emphasized the need for measures to counter the risks associated with an influx of weapons. He further appealed to all parties to the conflict to provide unfettered access to experts from the International Atomic Energy Agency (IAEA) to the Zaporizhzhia Nuclear Power Plant, underscoring the need to ensure the plant’s security to prevent potential catastrophic consequences — not only for Ukraine, but for the entire region. “Russian occupation and military aggression against Ukraine must end,” he stressed, noting that Ecuador values international efforts that prioritize negotiation and diplomacy.
JAMES KARIUKI (United Kingdom) noted that the Russian Federation’s defence industry orders its weapons from the Democratic People’s Republic of Korea in violation of multiple Council resolutions. Its purchase of Iranian drones also contravenes a Council resolution. While Ukraine, the United Kingdom and some 80 other countries were recently in Davos discussing Kyiv’s plans for peace based on the Charter of the United Nations, the deputy head of the Kremlin’s national Security Council proclaimed that there could never be peace while an independent State of Ukraine existed. That is not peace, but subjugation, he underscored. For this reason, the United Kingdom will continue to replenish Ukraine’s air defences. He added that London has entered into a new long-term agreement on security cooperation, announcing £2.5 billion more in military aid and £18 million in humanitarian aid for Kyiv.
AMAR BENDJAMA (Algeria) voiced concern that tensions are increasing worldwide while collective efforts to bring lasting and peaceful solutions to conflicts are failing. Further, the Council has not been adequately fulfilling its mandate due to increasing polarization. Echoing the concern that the flow of weapons into conflict areas will only increase the loss of life and hinder the prospect of a solution, he urged all parties to the conflict to fully comply with their obligations under international humanitarian law — including to protect civilian populations and infrastructure. States should also focus on promoting a peaceful solution by creating conditions for inclusive dialogue. It is paramount to intensify international diplomatic efforts to achieve peace — not only in Ukraine, but everywhere in the world. “Palestinian territories should not be the exception,” he asserted, adding that 24,000 Palestinians have been killed in Gaza over the past three months.
PASCALE CHRISTINE BAERISWYL (Switzerland), describing the Russian Federation’s military aggression against Ukraine as a flagrant violation of the prohibition against the use of force, urged Moscow to “cease hostilities immediately and withdraw its troops from Ukrainian territory”. She also expressed concern over reported weapon transfers from the Democratic People’s Republic of Korea to the Russian Federation, underscoring the importance of complying with relevant Council resolutions. Pointing to intensified Russian Federation attacks on towns and infrastructure in Ukraine, including the killing of civilians, she recalled that international humanitarian law must always be respected. “Efforts to achieve a just peace in Ukraine must be redoubled,” she urged, noting that her country has committed to efforts aimed at consolidating a common understanding of a path towards lasting peace that is shared by the broadest possible representation of countries.
SHINO MITSUKO (Japan), noting that delegations have lost count of the number of meetings requested by the Russian Federation on Western arms transfers to Ukraine, underscored that support for Ukraine is just and legal under international law. On the contrary, Moscow ruthlessly uses its weapons — and those obtained from the Democratic People’s Republic of Korea — against Ukraine in violation of Council resolutions. This is not about taking sides between the Russian Federation and others, nor is it a conflict between Moscow and the West — as the Kremlin often claims. “In this war of aggression, there are only those who violate the UN Charter and those who defend it,” she observed. Japan has recently been hit by a major earthquake. However, the suffering of the Ukrainian people is not caused by a natural disaster, but by the Russian Federation’s aggression. As such suffering is entirely man-made, she pointed out that it can only be stopped by the aggressor.
NICOLAS DE RIVIÈRE (France), Council President for January, spoke in his national capacity to emphasize that support for Ukraine aligns with Article 51 of the UN Charter. The anti-air defence capabilities being provided aim to assist Ukraine in defending itself against Russian Federation strikes targeting civilian populations and infrastructure. By training the Ukrainian Armed Forces, the international community is helping to repel such attacks. “The struggle being waged by the Ukrainian people is also a struggle for our Charter and our collective security,” he said, stressing the need to ensure the territorial integrity of each Member State. The Russian Federation — a permanent Council member — is acquiring drones from Iran and ballistic missiles from the Democratic People’s Republic of Korea in violation of Council resolutions. On the contrary, Ukraine has launched a credible process to work towards a just and lasting peace based on the Charter that is bringing a growing number of countries on board, he said.
SERGIY KYSLYTSYA (Ukraine), recalling the Russian Federation’s recent shelling of more than 100 Ukrainian cities and villages in nine regions, said that transfers of weapons and military equipment to the Russian Federation — particularly from Iran and the Democratic People’s Republic of Korea — continue to fuel the conflict and increase the toll of civilian casualties. Citing a recent statement made by former Russian Federation President Dmitry A. Medvedev about the true goals of Moscow’s war against Ukraine — eliminating all Ukrainians as long as they desire independence — he warned that the Kremlin intends to wage a war “until the last Ukrainian” because its model of the world contains neither Ukraine nor Ukrainians. Despite an increase in the number of attacks by the Russian Federation, he credited the decrease in victim statistics to strengthened air defence provided by allies and evacuation measures implemented by Ukrainian authorities.
The historical colonial and imperial mentality towards Ukraine persists among Russian Federation authorities, he went on to say. From Moscow’s perspective, achieving peace in the current war risks “losing Ukraine”, he pointed out, which explains the Russian Federation’s strong opposition to the implementation of Ukraine’s peace formula. Recalling the recent meeting of national-security and foreign-policy advisors in Davos, he emphasized that over 80 States and international organizations participated — testifying to the rapidly growing interest in the peace formula. He therefore urged that peace efforts be significantly strengthened, adding that the international community’s task extends beyond ending the war to include overcoming the consequences of the crises the conflict has caused worldwide.