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ARMS CONTROL & DISARMAMENT IN THE

UNITED NATIONS NEW AGENDA FOR
PEACE: A VIEW FROM PAKISTAN
By
Aamna Rafiq
Research Associate
Arms Control & Disarmament Centre, ISSI

Edited by
Malik Qasim Mustafa

September 15, 2023

(Views expressed in the brief are those of the author, and do

not represent those of ISSI)

The General Secretary of the United Nations (UN), António Guterres, offered “A
New Agenda for Peace”1 to all UN member states. In this agenda, he sketched out
his future vision for achieving security, peace, and stability, embedded in
multilateralism and international law, for a world that is living through massive
transformations. Taking into account the contemporary global security landscape,
Pakistan considers the “Agenda for Peace” both timely and essential. Regarding
arms control and disarmament, this agenda made some bold proposals vis-à-vis
militarisation of emerging and new technologies while lacking drive in the other
vital areas.

Reducing Human Cost of Weapons and Nuclear Disarmament

The New Agenda emphasizes reducing the human cost of weapons by redirecting resources from the
development of new kinds of weapons and means of warfare towards achieving sustainable
development and gender equality. There is a need for a human-centered approach toward peace
and security rather than overly militarized and securitized approaches reinforced by more than ever-
increasing military spending and shifting postures, doctrines, and strategies.2 Recognizing the global
trends of the arms race, the eroding arms control regime, and non-proliferation being thrown down

1 United Nations, Political and Peacebuilding Affairs, A New Agenda for Peace, Policy Brief 9 (July 2023),
https://www.un.org/sites/un2.un.org/files/our-common-agenda-policy-brief-new-agenda-for-peace-
en.pdf
2 Ibid, 22.

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 IB Arms Control & Disarmament in the United Nations New Agenda for Peace: A View from Pakistan September 15, 2023

the gauntlet, the agenda also calls for compliance with the high standards of nuclear safety and
security, accountability for the non-compliance, developing confidence-building measures (CBMs),
engaging through dialogue for further reductions and limits on nuclear weapons towards achieving
an ultimate objective of total elimination of nuclear weapons.3

While expressing its concerns regarding the bold suggestion of nuclear disarmament, Pakistan
argued that eliminating and prohibiting the use of nuclear weapons should not overshadow the
prohibition on the use of other types of force, including conventional and new high-tech weapons.
Pakistan cautioned that the commitment to nuclear disarmament should be put in a proper context.
The success of this recommendation depends on three factors: i) the five nuclear weapons states
properly fulfill their legal obligations and avoid pursuing double standards and policies of
discrimination; ii) legal guarantees provided by the nuclear weapons states that they would adhere
to the norm of non-use of nuclear weapons; iii) imposing punitive measures against any use or
threat of use of a nuclear weapon by the United Nations Security Council (UNSC). It is critical to
understand that all three factors in turn rely solely on the five nuclear weapon states with veto
power and how this power has been misused for the promotion of their strategic interests over the
decades has not been hidden from anyone. Similarly, the diversion of resources from the
development of new kinds of weapons and means of warfare towards achieving sustainable
development and gender equality should be revisited in the light of aggressive policies, doctrines,
and postures in the contemporary global landscape as they are causing conflict escalation and
security dilemmas. Pakistan set forth a proposal to prepare an Annual Report by the United Nations
Office for Disarmament Affairs (UNODA) on global and regional military spending, including the
figures of arms trade as well as the scale of military deployments.4

Preventing Weaponization of Emerging Technologies and Promoting Responsible Innovation

i. Conflict Prevention in Cyberspace

Keeping in view the rapid proliferation of malicious cyber threats to critical infrastructures by state
and non-state actors, the Agenda recognizes the need to speed up the efforts for the safety and
security of cyberspace. Cyberspace is not an unregulated domain. In addition to the UN Charter, the
agreed norms for responsible state behavior would guide the use of cyber technologies by the
states. However, there is a need for taking additional measures like preparing a universally agreed

3 Ibid, 16.
4 Permanent Mission of Pakistan to the UN, Statement by Ambassador Khalil Hashmi at the Plenary Meeting
of theConference on Disarmament, Agenda Item 6: Briefing on Disarmament aspects of New Agenda for
Peace (Geneva August 08, 2023): 2-3, https://pakungeneva.pk/TopicDetail.aspx?ID=1205.

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 IB Arms Control & Disarmament in the United Nations New Agenda for Peace: A View from Pakistan September 15, 2023

list of critical national infrastructures that would not be targeted during the peace as well as war
times. The Agenda also recommends the establishment of an “independent multilateral
accountability mechanism” to further enhance the state's compliance with agreed norms for
responsible state behavior in cyberspace.

On conflict prevention in cyberspace, Pakistan has maintained a consistent position. Pakistan

considers cyberspace a “Common Heritage of Mankind” and believes that the cardinal principles of
sovereignty, non-interventionism, non-use of force, and peaceful settlement of disputes continue to
apply in cyberspace. Regarding the list of critical national infrastructures, Pakistan maintains a
position that the complex interconnectedness of the internet, computer systems, and cyber
operations makes the distinction between military and civilian infrastructures extremely
complicated. Therefore, there is a need for reforms or transformations in the existing international
law to accommodate this complexity. About the establishment of an “independent multilateral
accountability mechanism,” Pakistan calls for the formulation of a legally binding instrument for
ensuring responsible state behavior in cyberspace as well as regulating the use of digital
technologies. However, devising this instrument or any other accountability mechanism in the future
should be an all-inclusive and consensus-driven process under the auspices of the UN. Till the
finalization of an instrument or mechanism, the Geneva Convention and its Additional Protocols
(APs) related to distinction will remain applicable to cyber conflicts.5

ii. Prevention of Conflict in Outerspace

The New Agenda identified the emergence of outer space as a potential domain of military
confrontation in the future as one of the major risks to international peace and stability. This risk
could be further aggravated by a growing number of stakeholders, the ever-increasing dependence
of militaries on outer space capabilities, and the rapid proliferation of dual-use space-based assets.
Therefore, the agenda recommends that member states should develop international rules,
principles, and norms via relevant disarmament institutions of the UN. The Agenda emphasizes
building a wider acceptance of these norms, principles, and rules, as this would serve as a strong
foundation for launching negotiations for a treaty on the prevention of an arms race to safeguard
peace and security in outer space.6 Pakistan recognized the urgent call for conflict prevention in
outer space. Pakistan argues that a huge number of international norms, principles, and rules

5 Permanent Mission of Pakistan to the United Nations, Pakistan`s Position on the Application of
International Law in Cyberspace (New York, March 3, 2023).
6 United Nations, Political and Peacebuilding Affairs, A New Agenda for Peace, Policy Brief 9 (July 2023): 27,
accessed August 16, 2023, https://www.un.org/sites/un2.un.org/files/our-common-agenda-policy-brief-
new-agenda-for-peace-en.pdf.

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 IB Arms Control & Disarmament in the United Nations New Agenda for Peace: A View from Pakistan September 15, 2023

already exist. Instead of excessive reliance on responsible state behavior, compliance with these
existing norms, principles, and rules must be ensured. Pakistan is also in favor of starting
negotiations on the Prevention of an Arms Race in Outer Space (PAROS) at the Conference on
Disarmament (CD).7

iii. Security Implications of Artificial Intelligence (AI) & Prohibiting Lethal Autonomous Weapon
Systems (LAWS)

Keeping in view the disruptive potential and unregulated dual use of AI, the Agenda calls for urgent
development of national strategies, global norms and principles for responsible military applications,
and a global regulatory framework and mechanisms for enhancing AI governance. Taking into
account the ethical, security, humanitarian, and legal concerns, the agenda declared the unregulated
design, development, production, and use of LAWS as a threat to international peace and stability.
The Agenda recommends that the UN member states should conclude a legally binding international
instrument on LAWS by 2026. This instrument must prohibit fully autonomous weapon systems
while regulating all other types of LAWS.8

Pakistan fully endorsed the recommendation of concluding a legally binding international instrument
on LAWS by 2026. Pakistan also maintains a position that the current discussion at the Convention
on Certain Conventional Weapons (CCW) largely revolves around the applicability of International
Humanitarian Law (IHL) on the development, deployment, and use of LAWS, while the security and
stability of LAWS in the military domain are rarely discussed. There is a need to highlight the
implications of new AI-enabled weapon systems as well as the integration of AI with existing
weapons systems. To fill this gap, Pakistan recently submitted a working paper at CD titled
“Addressing the Security and Stability Implications of Military Applications of Artificial Intelligence,
and Autonomy in Weapon Systems.”9 This working paper drew attention to the risks associated with
the integration of AI with nuclear force postures, the effects of a false sense of confidence created
by AI-generated data on crisis communication and decision-making, and AI-enabled disinformation
and propaganda. The unregulated military applications of AI would significantly lower the threshold

7 Permanent Mission of Pakistan to the United Nations, Statement by Ambassador Khalil Hashmi at the
Plenary Meeting of the Conference on Disarmament, Agenda Item 6: AI in the military domain and LAWS
(Geneva, August 03, 2023): 2-5, https://pakungeneva.pk/TopicDetail.aspx?ID=1203
8 United Nations, Political and Peacebuilding Affairs, A New Agenda for Peace, Policy Brief 9 (July 2023): 27-
28, accessed August 20, 2023, https://www.un.org/sites/un2.un.org/files/our-common-agenda-policy-
brief-new-agenda-for-peace-en.pdf.
9 Permanent Mission of Pakistan to the United Nations, Working Paper by Pakistan on "Addressing the
Security and Stability Implications of Military Applications of Artificial Intelligence (AI), and Autonomy in
Weapon Systems"
(Geneva, July 21, 2023), https://pakungeneva.pk/TopicDetail.aspx?ID=1204

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for the use of force, amplify the probability of miscalculations, and increase leaning towards
asymmetrical warfare, arms race, and proliferation among states as well as non-state actors. While
keeping CCW as an important platform for discussing the applicability of the IHL, the UN member
states could utilize other UN bodies to initiate debate on other aspects of AI. In this regard, CD could
play a vital role. Hence, Pakistan proposed taking up the military application of AI as a new agenda
item in the future sessions of CD and subsequently establishing a specialized subsidiary body.

iv. Preparation for Biorisks

The technological advancement and synergies are contributing to attaining sustainable development
in the field of biological security while wearing down the protection against new bioweapons, which
could be used for instigating disruptions and mass causalities by malicious actors. Furthermore, the
multi-dimensional intersection between disease and conflict along with the militarization of human
enhancement technologies would have critical implications for future warfare. Therefore, the New
Agenda calls for developing new measures within the UN`s farmwork to enhance the response while
strengthening the respective regulatory regime.10 In line with this new call and momentum
engendered by the 9th Review Conference of the Biological Weapons Convention (BWC), Pakistan
presented a new working paper titled, “Proposal for Cooperation and Assistance Mechanism under
Article X,”11 at the Working Group on Strengthening of the Biological Weapons Convention. The
paper proposed the establishment of a “tri-angular institutional mechanism” to develop, implement,
facilitate, and oversee the peaceful applications of biological technologies. This mechanism consists
of the International Cooperation and Assistance Program (ICAP), the International Cooperation and
Assistance Committee (ICAC), and the International Cooperation and Assistance Fund (ICAF).

Conclusion

To conclude, the New Agenda for peace is a much-needed step in the right direction to ensure
security, peace, and stability. The recommendations like strengthening the regulatory regime for
biothreats, understanding the multi-dimensional intersection between disease, conflict, and
technologies, devising mechanisms for AI governance, and concluding a legally binding instrument
on LAWS are pragmatic and a need of the hour. However, few recommendations appear to be

10 United Nations, Political and Peacebuilding Affairs, A New Agenda for Peace, Policy Brief 9 (July 2023): 29,
accessed August 15, 2023, https://www.un.org/sites/un2.un.org/files/our-common-agenda-policy-brief-
new-agenda-for-peace-en.pdf
11 Pakistan, Proposal for Cooperation and Assistance Mechanism under Article X, Working Group on the
Strengthening of the Convention on the Prohibition of the Development, Production and Stockpiling of
Bacteriological (Biological) and Toxin Weapons and on Their Destruction, Second Session Geneva, Agenda
item 6, BWC/WG/2/WP.13 (7-18 August 2023), https://documents-dds-
ny.un.org/doc/UNDOC/GEN/G23/158/01/PDF/G2315801.pdf?OpenElement.

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farfetched and idealistic, possibly indicating reluctance and a superficial treatment on the part of the
UN. The recommendations like the emphasis on reducing the human cost of weapons, redirecting
resources for sustainable development, and fast-tracking nuclear disarmament must be properly
analyzed in the context of the contemporary strategic landscape. The harsh reality is that the global
arms control and disarmament regime was at its zenith during the 1990s when member states
achieved consensus on major treaties and ever since it has gradually lost its momentum and become
stagnant. The UN bodies have now become an arena where great powers are competing to advance
their strategic interests, blocking a valuable initiative that might affect their military superiority,
following discriminatory policies, and bending the cardinal rules and norms of the global arms
control regime for a few states while punishing others with sanctions and denying access to critical
technologies. This has contributed to the existing deadlock in almost all existing negotiations and
new initiatives. The most alarming undertone in this New Agenda for peace as well as the overall
debate about arms control and disarmament is the more than ever emphasis on ‘responsible
behaviors’ rather than ‘responsible actions’. Responsible actions are verifiable, which enhances
predictability, strengthens trust, creates goodwill, promotes cooperation, and increases respect for
law and compliance. However, ‘responsible behaviors’ are not verifiable, resulting in a lack of mutual
trust, creating unpredictability, and encouraging violations. There is no doubt that this Agenda is
based on good intentions but it requires a rather hard reality check which the UN is seemingly
attempting to avoid.

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