Two Decades On: UNIDIR and RECSA Launch Landmark Review to Future-Proof the Nairobi Protocol
Written By Maxine Ansah
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Nairobi, July 2025 – Two decades after its adoption, the Nairobi Protocol remains a cornerstone in the fight against the illicit proliferation of small arms and light weapons (SALW) across the Great Lakes region, Horn of Africa and Bordering States. Yet, rising threats from non-state armed groups and emerging technologies such as drone warfare have made it clear that the Protocol must evolve to remain effective.
In response to these challenges, the United Nations Institute for Disarmament Research (UNIDIR) and the Regional Centre on Small Arms and Light Weapons in the Great Lakes Region, the Horn of Africa and Bordering States (RECSA) have launched a joint initiative to review and strengthen the Nairobi Protocol. This project, supported by the United Kingdom’s Foreign, Commonwealth and Development Office, marks the first comprehensive assessment of how the Protocol has been implemented at national and regional levels since it entered into force in April 2005.
A milestone for regional security
The Nairobi Protocol was born out of a shared recognition by 15 Member States of the urgent need to curb the devastating impact of small arms on human security, development and stability. Member States include Burundi, Central African Republic, Republic of Congo, Democratic Republic of Congo, Djibouti, Ethiopia, Eritrea, Kenya, Rwanda, Seychelles, Somalia, South Sudan, Sudan, Tanzania and Uganda. Just months after the Protocol’s adoption, RECSA was established in June 2005 to coordinate its implementation and build the capacity of national institutions.
This year, RECSA marked its 20th anniversary by hosting its 11th Council of Ministers Meeting and the 16th Meeting of the Technical Advisory Committee in Kenya. As part of these events, a symbolic destruction of over 6,000 illicit and obsolete firearms was led by H.E. Dr William Ruto, President of Kenya, reaffirming the region’s commitment to addressing the scourge of small arms. President Ruto also announced Kenya’s intention to ratify the Arms Trade Treaty (ATT) and reinforce SALW control efforts, signalling fresh momentum for reform.
Speaking at the meeting, RECSA’s Executive Secretary, Jean Pierre Betindji, noted that
“after 20 years of implementation of the Nairobi Protocol, our region is facing new challenges in the area of arms control, and Member States are expected to go through the Protocol to see how to strengthen it to include new areas of intervention”.
Responding to emerging security threats
The Council of Ministers adopted a report calling for a full review of the Protocol to ensure it remains fit for purpose. In response, the UNIDIR and RECSA project titled “Reviewing and Strengthening the Implementation of the Nairobi Protocol” was launched. The project will produce a detailed review of the Protocol’s implementation, offer recommendations to enhance its impact, and propose updates to its best practice guidelines.
Dr Paul Holtom, Head of UNIDIR’s Conventional Arms and Ammunition Programme, explained that the project aims to “identify common challenges, effective practices, and emerging threats” to guide the review process. To date, there has been no systematic evaluation across all Member States on their progress in meeting obligations under the Protocol. These include regulating civilian possession of SALW, ensuring proper marking and tracing of weapons, and encouraging voluntary surrender programmes.
New challenges have also emerged since the Protocol was drafted. Non-state actors have begun using uncrewed aerial systems to target civilians and security forces. Meanwhile, the region faces the ongoing risk of diversion and trafficking of conventional weapons. However, there are also new opportunities to strengthen controls by leveraging technologies and international cooperation frameworks, such as the ATT and the Global Framework on Through-Life Conventional Ammunition Management.
Towards a safer future
This review arrives at a critical moment for the region. It offers Member States a chance not only to commemorate two decades of progress but also to modernise and future-proof the Protocol for the next twenty years. By bringing together governments, technical experts and civil society, the initiative seeks to close existing gaps, respond to new threats and reinforce regional cooperation.
Initial findings from the review are expected to be shared at a multistakeholder conference by the end of 2025, followed by the publication of a comprehensive report and scorecard in early 2026. These outcomes will highlight effective national and regional measures, identify shared challenges, and suggest new strategies for tackling the illicit trade and misuse of small arms and light weapons.
UNIDIR and RECSA hope the project will foster stronger information sharing and cooperation across the Great Lakes region, Horn of Africa and Bordering States, in line with the Protocol’s objectives to promote peace, security and sustainable development.
As Dr Holtom put it, this joint effort promises “a renewed framework to combat illicit arms proliferation and promote lasting peace across the region”.