Summary: Non-signatory Pakistan has acknowledged the humanitarian concerns raised by cluster munitions but has not taken any steps to accede to the Convention on Cluster Munitions, as it regards them as legitimate weapons. Pakistan last participated in a meeting of the convention in 2016. Pakistan abstained from the vote on a key United Nations General Assembly (UNGA) resolution promoting the convention in December 2022.

Pakistan produces and stockpiles cluster munitions and has likely exported them. Pakistan has stated that it has never used cluster munitions. Pakistan alleged that India used cluster munitions in the contested region of Kashmir in 2019.

Policy

The Islamic Republic of Pakistan has not acceded to the Convention on Cluster Munitions.

Pakistan has expressed concern at the “irresponsible and indiscriminate use of cluster munitions,” and “condemns the use of cluster munitions against civilian populations and people under illegal occupation.”[1] However, it has not taken any steps to accede to the convention due to its long-standing objections to key provisions and over the way it was adopted. Pakistan also considers cluster munitions to be “legitimate weapons with recognized military value.”[2]

In November 2022, Pakistan told the UNGA that it “does not support the conclusion of important international treaties…such as the Convention on Cluster Munitions” because they were “concluded outside the UN framework.”[3] In the same statement, Pakistan said it “condemns the use of cluster munitions against the civilian population and people under illegal occupation.”

Pakistan did not participate in the Oslo Process that created the Convention on Cluster Munitions.[4]

Pakistan last participated as an observer at a meeting of the convention in 2016.[5] Pakistan was invited to, but did not attend, the convention’s Tenth Meeting of States Parties held in Geneva in August–September 2022.

In December 2022, Pakistan abstained from the vote on a key UNGA resolution that urged states outside the Convention on Cluster Munitions to “join as soon as possible.”[6] Pakistan has abstained from voting on the annual UNGA resolution promoting the convention since it was first introduced in 2015.

Pakistan is not party to the Mine Ban Treaty.

Pakistan is party to the Convention on Conventional Weapons (CCW). It has expressed regret that States Parties to the CCW failed to conclude a protocol on cluster munitions in 2011. The end of CCW deliberations on the topic left the Convention on Cluster Munitions as the sole international instrument specifically addressing the human suffering caused by these weapons. Pakistan has not proposed any new CCW work on cluster munitions since 2016, but regularly reiterates that the CCW is “the most appropriate forum” for considering the concerns raised by cluster munitions.[7]

Production, transfer, and stockpiling

Pakistan has produced ground-delivered and air-dropped cluster munitions.

State-owned Pakistan Ordnance Factories (POF) has produced, and offered for export, M483A1 155mm artillery projectiles containing 88 M42/M46 dual-purpose improved conventional munition (DPICM) submunitions.[8] POF entered into a licensed production agreement with South Korean company Poongsan in 2004 to co-produce K-310 155mm extended-range DPICM projectiles in Pakistan, at Wah Cantonment.[9] The Pakistan Army took delivery of the first production lots in 2008.[10]

The POF stand at the 2011 Defence and Security Equipment International (DSEI) arms fair in London, United Kingdom (UK) was closed after it displayed promotional materials listing 155mm extended range (base bleed) DPICM cluster munitions for sale.[11] POF advertised the same 155mm DPICM cluster munition at the 2009 DSEI arms fair, raising similar concerns for the UK as a State Party to the Convention on Cluster Munitions.[12]

According to Jane’s Information Group, the Pakistan Air Weapons Center has produced the Programmable Submunitions Dispenser (PSD-1), which is similar to the United States (US)-made Rockeye cluster bomb and dispenses 225 anti-armor submunitions. Jane’s Information Group also lists the Pakistan National Development Complex as producing the Hijara Top-Attack Submunitions Dispenser (TSD-1) cluster bomb and has reported that the Pakistan Air Force possesses UK-made BL-755 cluster bombs.[13] The US transferred 200 Rockeye cluster bombs to Pakistan between 1970 and 1995.[14]

Pakistan has not responded to calls to institute a prohibition on the transfer of cluster munitions, but has a long-standing export moratorium in place for antipersonnel landmines.[15]

Pakistan possesses cluster munitions, but has not shared information on the quantities or types stockpiled.

Use

Pakistan has stated several times that it has never used cluster munitions.[16]

Pakistan alleges that India used cluster munitions in the contested region of Kashmir on 30–31 July 2019 during an attack that reportedly killed two civilians, including a four-year-old boy, and injured 11 others.[17] The Pakistan Army released photographs showing DPICM-type submunitions from artillery-delivered cluster munitions. Pakistan’s president, foreign minister, and other high-ranking officials condemned the alleged cluster munition use for violating international law.[18]

India denied using cluster munitions in the attack, and the Indian Army issued a statement asserting the “allegations of firing of cluster bombs by India is yet another Pakistan’s lie and deception.”[19]

The Monitor was not able to conclusively determine if cluster munitions were used or whether India was responsible for any use.