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Part 3. Interagency cooperation

Wednesday 5 – Friday 7 February 2025

Wiston House exterior summer evening
  1. Advancing the ATT: The role of interagency cooperation and the next decade of the ATT
  2. Part 1. Recapping CSP10 and the first decade of the ATT
  3. Part 2. Enhancing universalisation and implementation of the ATT over the next decade
  4. Part 3. Interagency cooperation
  5. Part 4. The way ahead: conclusions and next steps for CPS11 and beyond
  6. Part 5. Conclusion

Overview

The Romanian Presidency of 10th Conference of States Parties (CSP10) chose interagency cooperation as its central theme, aiming to move from theory to practical action. This focus could aid in shaping future arms trade policies and strengthen efforts to prevent illicit arms flows. During the February 2024 ATT Working Groups, the Presidency highlighted that effective implementation cuts across many Treaty articles, from establishing and maintaining a national control system; controlling international transfers of conventional arms; and countering diversion and enforcing national laws and regulations. No single government agency, ministry or institution can implement the Treaty alone; structured and institutionalised cooperation is essential.

To support this, the ATT has developed several tools over past conferences, including the Voluntary Trust Fund (VTF, CSP2, 2016), Working Groups (CSP3, 2017) and the Diversion Information Exchange Forum (DIEF, CSP6, 2020). The ATT’s role as a unique platform for collaboration and exchange has been further strengthened by the adoption by the multiyear workplans for the Working Groups on effective Treaty implementation (WGETI), transparency and reporting (WGTR) and Treaty universalisation (WGTU).

National approaches to interagency cooperation

Experience has shown that there is no ‘one size fits all’ model for interagency cooperation. Each country’s approach reflects its governance structures, legal frameworks and institutional capacities. Some have centralised arms control agencies, while others use inter-ministerial committees or multi-agency review bodies, which may be permanent or ad hoc. Despite these differences, the core principle remains: successful ATT implementation depends on structured, institutionalised cooperation between all relevant agencies.

CSP10 discussions highlighted the diversity of national systems and suggested that analysing States Parties’ Initial Reports could help demonstrate these varied approaches. By sharing experiences and lessons learned, states can improve their own processes and address common challenges.

Challenges to interagency cooperation include:

  • Lack of awareness of ATT roles and responsibilities amongst institutions;
  • Institutional fragmentation, with responsibilities divided across multiple bodies;
  • Frequent staff turnover, disrupting continuity; and
  • Resource disparities between agencies

Benefits of interagency cooperation include:

  • Holistic decision-making and risk mitigation, as multiple authorities contribute to transfer authorisations;
  • Efficiency and resource optimisation, reducing duplication;
  • Improved transparency and reporting, as accurate data from multiple agencies is required to meet ATT reporting obligations; and
  • Strengthening compliance, as effective cooperation ensures national laws are followed and potential violations are identified and responded to.

The CSP10 discussions yielded several key recommendations:

  • States should voluntarily share information on national experiences and best practices for interagency cooperation;
  • ATT Working Groups should consider integrating the topic of interagency cooperation into their discussions and guidance documents;
  • Existing voluntary guidance on ATT implementation could be expanded to include recommendations on interagency cooperation;
  • States are encouraged to use the ATT Voluntary Trust Fund to support projects aimed at improving interagency coordination; and
  • A voluntary reference document outlining key elements of interagency cooperation could be useful to states looking to develop or refine their national processes.

Interagency cooperation and ATT reporting

Interagency cooperation is vital for fulfilling ATT reporting obligations under Article 13. Compiling Initial Reports (on national measures) and Annual Reports (on arms imports and exports) requires collaboration across agencies. While 81% of States Parties have submitted Initial Reports, Annual Report compliance has declined from 87% in 2015 to 62% in 2024. The fact that it is a legal obligation to report under the ATT suggests that there is some way to go, both in terms of reporting compliance and demonstrating that the ATT is an effective instrument. There are a variety of reasons for the unsatisfactory levels of reporting from capacity challenges to sub-optimal functionality within the ATT and UNROCA online reporting systems. These include:

  • A lack of interagency cooperation and trust between ministries (e.g. foreign affairs and data holding ministries)[1] 
  • Inadequate or inconsistent record-keeping practices;
  • Limited understanding of Treaty reporting obligations; and
  • Insufficient resources and training, compounded by staff turnover. coupled with staff turnover.

Many of these deficiencies could be addressed through effective interagency cooperation, such as a reporting calendar shared between focal points in different ministries, regular inter-ministerial meetings, and the development of standard operating procedures. International assistance, including training and VTF-funded projects, can help build national capacities. It is also important that both working-level and senior officials engage in ATT Working Group meetings to ensure comprehensive engagement.

Interagency cooperation and national systems

The CSP10 Presidency working paper on interagency cooperation and wider ATT discussions focus mainly on a state’s arms export control systems and establishing ‘the highest possible common international standards for regulating or improving the regulation of the international trade in conventional arms’ with a view to preventing and combating the illicit trade in conventional arms. At the national level, interagency cooperation supports these efforts by fostering information sharing and the development of synergies between the relevant government ministries as well as law enforcement, intelligence and customs. At the international level, the ATT Diversion Information Exchange Forum (DIEF) performs a unique function that facilitates discussions between states on cases of diversion and illicit trafficking; civil society and industry might also be able to provide their own particular insights. International assistance is provided to states which can help to prevent and combat diversion, however more information, for example in relation to relevant VTF-supported projects, could be made available.

The ATT encourages States Parties to ‘apply the provisions of this Treaty to the broadest range of conventional arms’, alongside controlling transfers of the seven UN Register of Conventional Arms (UNROCA) categories, small arms and light weapons, their parts and components.  States are increasingly using other regulatory tools, over above arms export controls, to regulate the international arms trade. This is creating challenges for interagency cooperation within states and cooperation between states. Factors driving this include:

  • Companies and research institutes within the ‘civilian sector’ are now at the forefront of developing and producing technologies with relevance for military and security systems, including in artificial intelligence (AI), space exploration, and quantum technologies. Such new technologies are not captured within the scope of the ATT. As such, interagency cooperation mechanisms established to facilitate ATT implementation may not be able to address the increasing role of new technologies in the international arms trade.
  • Drones, semi-conductors, electronics and other parts and components are playing an increasing role in active conflicts. Such items are often manufactured within the civilian economy for civilian end-use, so are more likely to fall outside the scope of the ATT, any associated interagency cooperation mechanisms, and established arms transfer control mechanisms.

States seeking to respond to these challenges are finding that traditional arms export controls often have little impact. Appropriate regulation of the transfer of parts and components for such technologies and systems also poses significant challenges for conventional arms control interagency cooperation mechanisms. As a consequence, states are increasingly turning to:

  • Implementing dual-use export controls covering technologies such as quantum computers, additive manufacturing tools and semi-conductors;
  • Applying sanctions measures to prevent transfers of sensitive technologies that are being integrated into weapon systems used by Russia in Ukraine.
  • Expanding Foreign Direct Investment (FDI) screening covering a wider range of investments and identifying transfers of knowledge and technology that could benefit a recipient state’s defence and security capabilities.

In addition, post-shipment controls, which have been extensively discussed within the ATT CSP process, could be applied by exporting states as a condition on which export licences for new and old technologies are granted. Decisions on such matters could be taken on the basis of interagency discussions, involving mechanisms established for ATT implementation.

Some states centralise all controls under one agency, while others create separate bodies, each approach presenting its own challenges and opportunities. The ATT provides a forum to discuss the domestic and international challenges caused by the growing use of overlapping policy tools; it also can address their impact on actors such as companies and research institutes who are increasingly subject to export controls, sanctions’ applications and FDI screening. Moreover, states should pay attention to how such policy tools are integrated, coordinated and aligned at the national level. Discussion should also focus on how to ensure that Emerging and Disruptive Technologies (EDT) are not used in ways that violate ATT provisions.

Interagency cooperation, data sharing and transparency

Data sharing among agencies is often hindered by commercial confidentiality, political sensitivities, national security concerns and inconsistent recordkeeping. Incomplete or misleading data, fluctuating attitudes to transparency, and bureaucratic rivalries further complicate matters. Trust-building is essential for improving cooperation between government agencies. To this end, data should be presented in a way that avoids creating problems for particular institutions.

Systemic issues include:

  • Discrepancies between government and industry records, leading to inconsistencies in official reporting;
  • Lack of communication and harmonisation between agencies classification and interpretation of information;
  • Misconceptions about reporting, such as overestimating reporting obligations, leading to unnecessary administrative burden; and
  • Insufficient senior-level awareness, affecting the prioritisation and content of reporting.

The ATT presents an opportunity for greater interaction among agencies that typically do not collaborate, such as licensing, law enforcement, and customs. Expanding such engagement could help address systemic inefficiencies and improve implementation. The designation of focal points for licensing officers could facilitate more structured exchanges and encouraging peer-to-peer exchanges can help to disseminate best practices and reduce the burden of compliance.

Obstacles to interagency cooperation

There are several identifiable obstacles to interagency cooperation, including:

  • Potential rivalry and unclear mandates across government agencies;
  • Gaps in legislation and absence of cooperation requirements;
  • Competing political agendas and resource constraints;
  • Staff turnover and loss of institutional memory;
  • Lack of technical expertise and engagement across all relevant officials;
  • Multiplicity of disarmament and arms control processes, reducing the scope for effective cooperation across all commitments.

Finally, while building institutional capacities on ATT-related issues is important for Treaty implementation, public and parliamentary support is also critical. There is a need to enhance public perceptions of and support for the ATT and to engage political parties and parliament.

Interagency coordination and policy

There is a lot of international attention in the area of arms transfers. National legislation and regulations need to be aligned with the ATT, without this, it is very difficult to implement the Treaty. For example, in many countries where there is lack of border control, this lack of regulation allows transnational organised crime to flourish.

There are barriers to effective implementation of the ATT at national, international and local levels. The ATT is an international obligation, but different agencies within national and international systems have different mandates and responsibilities which create impediments to the development of a culture of information-sharing and a tendency to work in silos.

At the national level, it is important to identify all relevant institutions involved in ATT implementation. In addition, an interagency mechanism needs to be established to ensure that government bodies concerned with ATT implementation understand their role. National-level leadership is also required to ensure that relevant policies are applied consistently, and human and financial resources are conserved.

Finally, changes of national government leadership and in the national political environment can undermine consistency of implementation. It is imperative that there is good handover between administrations, as well as good record keeping reinforcing the national framework and galvanise implementation irrespective of changes in government.

[1] This was a key factor highlighted during a UNIDIR workshop held in Monrovia in March 2024 attended by 19 African states.

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