Ghana to Host High-Level National Consultation on Explosive Weapons in Populated Areas (EWIPA)

Introduction: A Pioneering Step for Civilian Safety in Urban Conflict Zones

In a significant move for humanitarian security and international humanitarian law (IHL), Ghana has announced it will host a high-level nationwide consultative meeting dedicated to addressing the devastating impact of explosive weapons in populated areas (EWIPA). Scheduled for early 2026, this landmark national consultation is a proactive initiative by the Republic of Ghana to strengthen the protection of civilians from the widespread harm caused by the use of heavy explosive weaponry in towns, cities, and other densely inhabited zones. This meeting, organized by the National Commission on Small Arms and Light Weapons (NACSA) in partnership with key civil society and international organizations, underscores Ghana’s commitment to joining a growing global movement to mitigate the catastrophic humanitarian consequences of modern warfare in urban environments. The consultation is strategically positioned as a preparatory step for a major Africa Regional Workshop on EWIPA, also set to be held in Accra, positioning Ghana as a potential leader on this critical issue within the African continent.

Key Points: Understanding the Ghanaian Initiative

The core objectives and logistics of the upcoming national consultation can be summarized as follows:

• Primary Goal: To build a robust national consensus in Ghana on policies and practices that enhance the safeguarding of civilians from the effects of explosive weapons used in populated areas.
• Organizers: The meeting is convened by Ghana’s National Commission on Small Arms and Light Weapons (NACSA), in collaboration with the Foundation for Security and Development in Africa (FOSDA), the United Nations, the International Committee of the Red Cross (ICRC), and Article 36 (a UK-based organization focused on conflict prevention).
• Timing & Context: The national consultation will precede the 2-Day Africa Regional Workshop on EWIPA, scheduled for April 2026 in Accra. This sequence allows Ghana to refine its national stance before engaging regionally.
• Participants: It will bring together a multisectoral platform including key government ministries and institutions, security agencies, a wide array of civil society organizations (CSOs), and international partners and diplomats. Ambassadors from Austria, Ireland, and Norway are expected to attend, with the opening ceremony honored by Ghana’s Honorable Minister for the Interior.
• Policy Framework: Discussions will center on the Political Declaration on Strengthening the Protection of Civilians Arising from the Use of Explosive Weapons in Populated Areas, adopted in Dublin in November 2022. The Declaration, while not a legally binding treaty, establishes a powerful political commitment for states to review military policies, improve harm data collection, facilitate humanitarian access, support victims, and enhance international cooperation.
• Global Context: As of early 2026, 90 states have endorsed the Dublin Declaration, including several African nations. Ghana’s potential endorsement is a key anticipated outcome of this process.

Background: The Global Crisis of EWIPA and the Dublin Declaration

The Devastating Human Cost of Urban Explosive Violence

The use of heavy explosive weapons—such as artillery, mortars, rockets, missiles, and aerial bombs—in populated areas has emerged as one of the most pressing humanitarian challenges in contemporary armed conflict. The characteristics of these weapons, including their wide blast and fragmentation effects, make them inherently indiscriminate when used in cities, towns, and villages. The consequences are severe and multi-layered:

• High Civilian Casualties: Direct and immediate deaths and injuries among non-combatants are exceptionally high. The United Nations and ICRC consistently report that a majority of casualties from explosive weapons in populated areas are civilians.
• Destruction of Critical Infrastructure: Attacks damage or destroy homes, hospitals, schools, water and power systems, and markets, crippling essential services for entire communities.
• Long-Term Humanitarian Crises: The aftermath includes mass displacement, contamination of areas with unexploded ordnance (a persistent threat for decades), psychological trauma, and the collapse of local economies.
• Systemic Pattern: This is not an incidental problem but a consistent pattern observed in conflicts from Syria and Yemen to Ukraine, Afghanistan, and the Sahel region of Africa.

International humanitarian law, particularly the principles of distinction (separating combatants from civilians) and proportionality (avoiding excessive civilian harm in relation to military advantage), is frequently violated in practice when these weapons are used in densely populated settings. This gap between legal principle and operational reality has driven a powerful advocacy movement.

The Emergence of the Political Declaration on EWIPA

In response to this crisis, a coalition of states, led by Ireland and Austria, initiated a diplomatic process to develop a political response. This culminated in the adoption of the Political Declaration on Strengthening the Protection of Civilians from the Use of Explosive Weapons in Populated Areas in Dublin on November 18, 2022. The Declaration is a political, not a legal, instrument. Its significance lies in its ability to create a common political standard and a framework for national and international action. Key commitments include:

• Strengthening compliance with IHL.
• Reviewing and developing military policies and practices to avoid use of explosive weapons in populated areas where there is a high risk to civilians.
• Improving the collection and sharing of data on civilian harm caused by explosive weapons.
• Facilitating safe and unimpeded humanitarian access to affected populations.
• Providing assistance to victims and survivors of explosive weapons.
• Enhancing international cooperation and assistance to support these efforts.

The Declaration represents a “political turning point,” creating a normative framework that encourages states to adopt restrictive policies on the use of explosive weapons in cities. Endorsement signals a state’s acknowledgment of the problem and its commitment to work towards solutions.

Analysis: Ghana’s Strategic Role and Regional Implications

Ghana’s decision to host this national consultation, followed by the regional workshop, is a calculated and strategic foreign and security policy move with several layers of significance.

1. Leadership Within the African Context

Africa is not immune to the horrors of EWIPA. Conflicts in the Sahel, the Horn of Africa, and the Democratic Republic of Congo have seen the devastating use of explosive weapons in populated areas. By taking a leading role, Ghana is filling a notable gap. While countries like South Africa have engaged with the issue, a coordinated African regional voice has been developing slowly. Ghana’s initiative, in partnership with FOSDA—a respected pan-African CSO—signals an intent to catalyze broader African engagement. It positions Ghana as a normative leader on human security and peace and security issues within the African Union (AU) and sub-regional bodies like ECOWAS.

2. Strengthening National and Regional Policy Coherence

The consultation is not occurring in a vacuum. It is a direct input into Ghana’s own national security and defense policy review processes. It forces a dialogue between the Ghana Armed Forces, the police, interior ministry, and civil society on how national military doctrine and rules of engagement align with the spirit of the Dublin Declaration. This internal process strengthens national ownership of the civilian protection agenda. Regionally, the subsequent workshop will allow Ghana to share its consultative model with neighbors, potentially inspiring similar national processes in other African states and fostering a regional consensus that can be presented at the UN and other forums.

3. Enhancing International Partnerships and Credibility

The involvement of the UN, ICRC, and European states like Austria, Ireland, and Norway (all strong supporters of the Declaration) highlights the international dimensions. For these partners, Ghana represents a stable, democratic partner in a volatile region, making its endorsement of the Declaration particularly valuable for building broad-based, geographically diverse support. For Ghana, hosting these events deepens strategic partnerships, attracts focused development and humanitarian cooperation, and enhances its reputation as a responsible member of the international community committed to international humanitarian law and the protection of civilians.

4. The Path to Endorsement and Beyond

While the national consultation does not automatically equate to endorsement, it is the essential foundational step. A genuine, inclusive national dialogue involving security actors, victims’ groups, and humanitarian agencies creates the domestic legitimacy needed for a state to make such a political commitment. The analysis suggests that Ghana is highly likely to endorse the Dublin Declaration following this process. The more critical long-term step will be the translation of that endorsement into concrete changes in military doctrine, training, and operational procedures for any Ghanaian forces deployed abroad or in domestic operations. The consultation is the starting gun for that longer-term implementation journey.

Practical Advice: What Comes Next and How to Engage

For policymakers, security professionals, civil society, and the general public in Ghana and beyond, this announcement opens a window for meaningful engagement. Here is a practical guide to the process and its implications:

For Ghanaian Government and Security Institutions:

• Participate Constructively: Engage in the national consultation with an open mind, bringing operational experience and legal expertise to the table. The goal is to develop practical, realistic policy reviews that enhance civilian protection without compromising legitimate military operations.
• Begin Internal Reviews: Use the consultation as a catalyst to immediately start reviewing existing rules of engagement (ROE), targeting protocols, and training manuals for any operations where explosive weapons might be used in or near populated areas.
• Invest in Data Systems: Prioritize the development of robust mechanisms for recording and analyzing incidents of civilian harm, a key commitment under the Declaration. This data is essential for accountability and learning.
• Prepare for the Regional Workshop: Use the national consensus to develop a clear, principled national position for the Africa Regional Workshop, advocating for a strong African contribution to the global EWIPA norm.

For Civil Society Organizations (CSOs) and Advocates:

• Document and Share Evidence: CSOs, particularly those working in conflict-affected zones or with victims, should compile and present evidence-based case studies of the impact of explosive weapons in populated areas within Ghana and the region.
• Mobilize Public Awareness: Launch public education campaigns to explain what EWIPA is and why it matters, building grassroots support for a strong national stance and eventual endorsement of the Declaration.
• Monitor the Process: Act as independent observers during the consultation and follow-up implementation phases, holding the government and military accountable for translating words into action.
• Build Coalitions: Strengthen networks between human rights, humanitarian, peacebuilding, and development CSOs to present a united front on the need for civilian protection.

For International Partners and Donors:

• Provide Technical and Financial Support: Offer expertise on IHL, policy development, and data collection to support the national consultation and subsequent implementation. Funding for CSO participation and victim assistance programs is crucial.
• Share Best Practices: Facilitate exchanges with countries that have already adopted restrictive policies on EWIPA or have experience in mitigating civilian harm in urban operations.
• Offer Consistent Diplomatic Engagement: Maintain high-level political attention on the issue, recognizing and encouraging Ghana’s leadership while keeping the pressure on for tangible results.

For Media and the Public:

• Report Accurately and Persistently: Move beyond the initial announcement to provide ongoing coverage of the consultation’s discussions, the diversity of views, and the follow-up actions. Frame the issue around human stories of impact and survival.
• Understand the Nuance: Explain that this is about changing the *default* policy for using the most destructive weapons in cities, not about preventing all military operations in urban areas. It’s a proportionality and precaution issue.
• Demand Accountability: Ask questions of officials: “What specific changes will we see in military training?” “How will we track civilian casualties?” “When will Ghana endorse the Declaration?”

FAQ: Common Questions About the Ghanaian EWIPA Consultation

What exactly are “Explosive Weapons in Populated Areas” (EWIPA)?

EWIPA is not a specific weapon category but a use-of-force context. It refers to the use of any heavy explosive weapons—such as artillery, mortars, rockets, missiles, and large bombs—in cities, towns, villages, or any other area where civilians are concentrated. The defining concern is the wide-area effects of these weapons, which make it difficult to limit their impact to a specific military objective, leading to high civilian casualties and infrastructure damage.

How is this different from the ban on anti-personnel landmines or cluster munitions?

The Ottawa Treaty (landmines) and the Convention on Cluster Munitions are legally binding treaties that prohibit specific weapon types entirely due to their indiscriminate nature and long-term effects. The EWIPA Political Declaration is different. It does not ban any specific weapon. Instead, it focuses on the *context of use*—populated areas—and calls on states to adopt restrictive *policies and practices* to avoid using explosive weapons in such areas when there is a high risk to civilians. It is a policy-based approach to a use-based problem.

Is Ghana currently involved in conflicts where these weapons are used?

Ghana itself is not experiencing active armed conflict. However, Ghanaian security forces participate in UN and ECOWAS peacekeeping missions (e.g., in Mali, Congo, South Sudan) where they may witness or be involved in situations where explosive weapons are used in populated areas. Furthermore, the Sahel region’s instability means the threat of transnational armed groups operating near Ghana’s borders is a security concern. The consultation is therefore about establishing a clear, principled national stance for all current and future operations.

What would “endorsing the Dublin Declaration” actually mean for Ghana?

Endorsement would be a formal political statement by the Government of Ghana, aligning it with the Declaration’s commitments. This would then trigger a domestic process to:

1. Review and potentially revise Ghana’s military doctrines, rules of engagement, and training curricula to incorporate the Declaration’s principles.
2. Establish systems to monitor and report on civilian harm in any operations involving explosive force in populated areas.
3. Develop national plans for victim assistance and humanitarian access in relevant scenarios.
4. Use its diplomatic voice in regional and international forums to encourage other states to adopt similar restrictive