Civilians continue to bear the brunt of bombing and shelling in towns and cities across the globe. Worldwide, civilians, including children, and civilian infrastructure are harmed by explosive weapons, causing immediate and long-term reverberating effects. This was the topic of a side event, “Protecting civilians from the humanitarian consequences of the use of explosive weapons in populated areas” during the 2025 Protection of Civilians Week at the UN. The event, hosted by the Permanent Missions to the United Nations of Ireland, Costa Rica, Jordan, the Philippines and Sierra Leone, as well as the Permanent Observer Mission of the African Union, UNICEF, UNODA, OCHA, the ICRC, INEW and CIVIC, represented the broad coalition of actors tirelessly working together on this issue.  

The event, which featured a long list of esteemed speakers, emphasised the widespread ongoing and well-documented patterns of harm from explosive weapons when used in populated areas, and reiterated calls for states to endorse and implement the Political Declaration on Strengthening the Protection of Civilians from the Humanitarian Consequences Arising from the Use of Explosive Weapons in Populated Areas. 

Ambassador Fergal Mythen, from the Irish Permanent Mission, opened the meeting by drawing attention to the conflicts in Gaza, Ukraine, Sudan and Myanmar. Paraphrasing the UN Secretary-General’s annual report on the protection of civilians, Mythen stated that the use of explosive weapons in populated areas is closely associated with escalating deaths and harm in conflict. The Ambassador spotlighted the Political Declaration as a tool to protect civilians, and called on states to endorse and implement its commitments. In what the Ambassador referenced as a difficult time, he drew attention to the strong and growing coalition of states, UN agencies, the ICRC, and civil society that continue to work on protecting civilians from explosive weapons in populated areas. Ambassador Mythen also underlined the central role of this coalition in bringing about the Political Declaration. 

Tom Fletcher, Under-Secretary-General for Humanitarian Affairs and Emergency Relief Coordinator at OCHA, emphasised the widespread harm caused by explosive weapons in conflicts over the past year. In a prerecorded contribution, Fletcher noted that in 2024, more than 55,000 civilians were killed or injured by explosive weapons in populated areas in just six contexts; Gaza, Lebanon, Myanmar, Sudan, Syria and Ukraine. This, Fletcher said, is a “staggering increase” from 2023. “There is no ambiguity here: using explosive weapons in populated areas kills, it maims, it tears families and communities apart”. The Under-Secretary- General also drew attention to the long-term and reverberating effects of explosive weapons. “These systems wipe out hospitals, water systems, power grids, food supplies; everything communities need to survive and recover. They make it harder to deliver aid, and even more dangerous for those who try.” The reverberating effects continue after fighting stops, with destroyed housing preventing displaced people from returning, and explosive remnants of war threatening the life and limb of civilians, in particular children, who often mistake them for toys. 

The patterns of harm from explosive weapons are clear and have been documented over many years, said the Under-Secretary-General. That is why the UN Secretary General has consistently called for the end of the use of explosive weapons in populated areas. Fletcher called on states and other armed actors to change the way they fight. He reminded attendees that the tools and norms exist to prevent and mitigate the harm to civilians from explosive weapons, calling the Political Declaration a critical step forward. The Declaration alone is not enough, action is required, Fletcher said, calling on states to implement, and expand support for, the Declaration. 

The African Union’s Ambassador Fatima Kyari Mohammed welcomed the timely and vital event, expressing concern for the increasing number of armed conflicts taking place in urban and densely populated areas, and their immense and long-term impact on civilian life. The Ambassador stated that the protection of civilians in armed conflict is at the heart of the African Union’s agenda. Mohammed drew attention to the AU Peace and Security Council encouragement to all member states to endorse the Political Declaration, and to adapt military policy and practice to address risks from the use of explosive weapons in populated areas, including limiting the use of explosive weapons with wide-area effects. The Council is working to raise awareness of the human impact of explosive weapons and its common plan for action is working to facilitate learning and implementation activities across the continent, the Ambassador said.

Mr Joseph Dube, from Arms Control and Disarmament, a member organisation of the International Network on Explosive Weapons, briefed the attendees on recent developments on the issue of explosive weapons in southern Africa. There is growing regional recognition of the urgent humanitarian challenge posed by the use of explosive weapons in populated areas among southern African states. Highlighting a recent workshop for SADC countries, Mr Dube explained that states are convening national, cross-ministry dialogues on the issue of civilian harm from explosive weapons and the Political Declaration. Several states have expressed interest in endorsing the Declaration, including the Democratic Republic of the Congo. Malawi, a state that has already endorsed the Declaration, used the workshop as an opportunity to share its ongoing process of implementing the Declaration, such as reviewing and adapting military policies and practices, including policy on operating in urban areas, weapons procurement and ensuring it has endorsed all relevant international conventions. Mr Dube said it was encouraging to see states in southern Africa organising national conferences on the Political Declaration in their IHL committees, and concluded by expressing hope that this will lead to more southern African states endorsing the Declaration. 

Ms Nicky Spencer-Coker, Spokesperson at Sierra Leone’s Permanent Mission to the UN, described explosive weapons in populated areas, including those with wide-area effects, as among the gravest threats to civilians in ongoing conflicts. Ms Spencer-Coker, voiced Sierra Leone’s support for the Political Declaration. She explained that Sierra Leone’s approach is based upon the country’s lived experience, specifically the use of and harm from explosive weapons during its civil war. She called for stricter regulation, improved civilian protection, adherence to IHL, and increased accountability as means to mitigate the harm from explosive weapons. 

Mr Sultan Natheir Mustaga Alqaisi, Jordan’s Deputy Permanent Representative to the UN expressed Jordan’s concern for the use of explosive weapons in populated areas, stating that when war comes to cities, civilians suffer the most. Mr Alqaisi drew attention to the widespread harm in Gaza, stating that this highlights the importance of the Political Declaration. Commitments to avoid the use of explosive weapons in populated areas, condemn such actions, promote accountability, respect and uphold IHL, and the centrality of civilian protection as a guiding principle, must be seen on the ground. The strength of the Political Declaration comes from its implementation, in military policy and practice, and through shared best practices, said Mr Alqaisi. To this end, as a first step, he encouraged all states to endorse the Political Declaration as a moral stand.

Testimonies from children in Lebanon, collected by UNICEF, were presented in a pre-recorded video, highlighting the voices of Taline (10), Maha (10), Mira (9) and Mohammed (11), as well as the mother of Sawsan (6). Sawsan was playing with friends outside when an explosive hit a nearby house. A piece of shrapnel struck Sawsan’s head, and her mother found her unresponsive and motionless. Sawsan’s mother describes how Sawsan, who was always full of energy, singing and dancing, now is unable to walk, swallow, speak or see, and experiences involuntary movements, caused in part by a brain injury. Speaking to UNICEF from a classroom, Maha said she is getting used to the sounds of explosions. Her friend Taline, described how she would call her father every time she heard a loud sound, asking him whether it was a sonic bomb or distant shelling. “Even when the explosion is not close to me, my heart aches”, Taline said crying, with her ten-year-old friend trying to console her. Mira, displaced by the use of explosive weapons, described a strong longing to return home, to see her relatives, and a hope that “we will [all] be safe and well.” Mohammed spoke to UNICEF from a hospital bed, with large parts of his body severely burnt from explosive weapons. He described how he was sitting on the balcony when their home was hit by two missiles, causing the building to collapse and its gas line to explode “on my mom and me”. Speaking about the long journey to recovery, Mohammed said “I hope to heal soon, and for the war to end”. 

Mr Gopal Mitra, UNICEF’s Global Lead on Disability and Development began his statement with a reference to the video, asking: do the children not deserve better? The immense suffering expressed by the children says it all, Mr Mitra said, emphasizing the both physical and psychological impact on children. Mr Mitra drew attention to the disastrous reverberating effects from the use of explosive weapons, referencing displacement, lack of basic services, water, sanitation and education. Essential infrastructure can be destroyed in seconds, but it takes years to rebuild, with explosive remnants of war impacting communities for decades. For children with disabilities the impact can be even more severe. In 2023, Mr Mitra said, two thirds of all children killed and maimed in conflict was caused by explosive weapons, most often in populated areas. The numbers for 2024 are likely to be higher, he said, highlighting harm seen in Gaza, Myanmar, the DRC and Ukraine. Mr Mitra called on member states to endorse and implement the Political Declaration, including adapting military policies and practices to align with the commitments set out in it. He called on states to consistently condemn the use of explosive weapons in populated areas across conflicts. Mr Mitra also drew attention to disarmament efforts, calling on states not to sell weapons to parties that are likely to use these in civilian areas (referencing the Arms Trade Treaty) and strongly urged state parties that are in the process of withdrawing from the antipersonnel landmine convention to reconsider.  

Mr Pierre Apraxine, Head of Legal Department at the ICRC in New York stated that the use of explosive weapons in populated areas is causing civilian harm on a shocking scale, referencing Gaza, Ukraine, Myanmar and Sudan. The direct and indirect effects are devastating, including destruction of essential services, energy infrastructure, food production and provision. Mr Apraxine explained that IHL does not explicitly prohibit the use of explosive weapons in populated areas. However, the high likelihood of the effects reaching beyond the military target makes it hard to use explosive weapons in adherence with IHL, and the principles of distinction and proportionality. Strong commitments towards restricting the use of explosive weapons in populated areas have been made through the Political Declaration and the Pact for the Future, Mr Apraxine said. Yet, these have not translated into better protection on the ground. Mr Apraxine reemphasised the ICRC call on all states to endorse the Political Declaration. The ICRC has formulated recommendations to operationalise the Declaration’s commitments, both for political authorities and armed forces, including measures to be considered before, during and after operations. Mr Apraxine stated that it is the ICRC’s position that explosive weapons with wide-area effects should not be used in populated areas unless these effects can be mitigated. An avoidance policy, in line with the Declaration’s commitment to restrict and refrain, has been repeatedly reiterated by the ICRC and its movement. As part of the process of national implementation of the Political Declaration, the ICRC has called on states to develop or adapt military doctrine; provide training for all individuals involved in military operations (including decision-makers, planners and those involved in the targeting process); ensure critical infrastructure and service systems are identified, mapped and communicated to decision-makers; and for militaries to study, develop and plan on the strategic, operational and tactical levels to avoid the use of explosive weapons with wide-area effects in populated areas, including making sure that military targets are located far enough away from civilian infrastructure as not to damage these. 

Ms Katherine Young, Research and Monitoring Manager, EWM and INEW 

The use of explosive weapons in populated areas is the leading cause of harm to civilians in armed conflict; this has been documented by civil society, the UN, and the ICRC over more than a decade, said Ms Young. The Explosive Weapons Monitor 2024, an annual report produced by the research initiative of the International Network on Explosive Weapons, published in May 2025, finds that harm to civilians from explosive weapons continues to be widespread and global, with devastating immediate and long-term impact. Civilian deaths remained alarmingly high in Gaza, representing almost two thirds of all deaths from explosive weapons across the globe in 2024. The report also found that civilian harm increased significantly in Lebanon, Myanmar, Syria and Ukraine in 2024. In 2024, attacks on healthcare had increased by 64 percent, on education more than doubled, and on humanitarian aid by nearly 500 percent, compared to 2023 according to data from Insecurity Insight, reported Ms Young. This, she emphasised, does not represent the true extent of harm from explosive weapons in populated areas. Ms Young emphasised that further understanding of the harm caused by explosive weapons is essential, reminding the audience that it reaches beyond the time and place of use. The scale of harm found shows it is a critical humanitarian priority to bring the Political Declaration into life. She called on states to endorse the Declaration, and endorsers to implement it including through reviewing, revising and developing policies and practices. 

Representatives of the states of Norway and the Philippines voiced support for the Political Declaration from the floor. Norway’s representative, Cathrine Andersen, expressed concern for narratives portraying civilian protection and national security as opposing interests. Ms Andersen stated that the opposite was true, and that full civilian protection should be a core priority for national security, expressing that civilian protection and accountability are building blocks for peace. The representative of the Philippines explained that the protection of civilians is a core foreign policy commitment, and expressed its unwavering support for the Political Declaration. Furthermore, he stated the Philippines support for the view that IHL provides the framework for the implementation of the Political Declaration, and emphasised the need to translate words into action.    

The Democratic Republic of the Congo voiced support for the Political Declaration and expressed that it is working to endorse it. The First Counselor, Victoria Liolocha, explained that it has experienced civilian harm from explosive weapons, underlining the suffering of children, including in the DRC. She explained that it is undertaking work nationally with the aim of endorsing the Political Declaration.  

Ambassador Maritza Chan, the Permanent Representative of Costa Rica to the UN concluded the meeting with some reflections. First, she expressed the real sense of urgency and undeniable momentum of this issue. It has become a central part of the broader protection of civilians agenda. Its inclusion in the recommendations in the Pact of the Future was imperative, said the Ambassador. Indeed, the humanitarian effect of urban warfare was underscored in the UN Secretary General’s annual report on the protection of civilians in armed conflict. Second, Ambassador Chan drew attention to the second international follow-up conference on the Political Declaration in Costa Rica. The Conference will provide a formal platform for the UN system, ICRC, civil society and states to share good practices, identify challenges and promote implementation – such as reforms in military policy and practice, including on restricting and refraining from use, commitments on collecting and sharing data, protecting critical civilian infrastructure and ensuring humanitarian access. The run up to the conference also provides an opportunity to rally states to endorse the Declaration, in particular from underrepresented regions. Third, the Ambassador called on the advancement of a data driven and evidence based approach, this will inform better policy, humanitarian assistance, and inform operational guidance as well as post conflict recovery. Ambassador Chan also emphasised the importance of accountability. Fourth, Ambassador Chan called on the consolidation of frameworks on protection of civilians, including states closing existing gaps between these. It is essential to ensure a more effective and coordinated approach, stated Ambassador Chan, arguing that fragmentation of existing frameworks limits impact. Finally, Ambassador Chan underlined that explosive weapons do not discriminate between civilians and combatants, and expressed that norms will only have teeth when those who use weapons indiscriminately are held to account.