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Articles

Africa–India nuclear cooperation: Pragmatism, principle, post-colonialism and the Pelindaba Treaty

Pages 319-339 | Published online: 16 Nov 2011
 

Abstract

The United States–India nuclear agreement, announced in 2005, was a first step in the process to normalise India's international nuclear relations despite the fact that India is not a party to the Treaty on the Non-Proliferation of Nuclear Weapons. Africa is largely seen as a uranium supplier rather than nuclear power producer in the world nuclear order. The position that African states take towards Africa–India nuclear cooperation, uranium supply to India in particular, is informed by two seemingly contrasting factors, namely economic and political pragmatism on the one hand, and non-proliferation imperatives and norms on the other. The African Nuclear Weapons Free Zone Treaty, also referred to as the Pelindaba Treaty, prohibits uranium and nuclear-related exports to states without comprehensive safeguards of their nuclear facilities, but the case of India is still open for interpretation. Africa and India's shared post-colonial consciousness, manifesting in their historical ties, membership of the Non-Aligned Movement and South–South cooperation, is often regarded as another factor facilitating Africa–India nuclear relations. A more critical view points to the different notions of post-coloniality in Africa and India, resulting in different approaches to nuclear non-proliferation that constrain their nuclear relations.

Notes

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26. See: IAEA, INFCIRC/254/Rev.8/Part 1a, 2006,<http://www.iaea.org/Publications/Documents/Infcircs/2006/infcirc254r8p1.pdf>, for the NSG's guidelines for the export of nuclear material. On 24 June 2011, the NSG announced that it had agreed to strengthen its guidelines for the transfer of sensitive enrichment and reprocessing technologies. The new text of the guidelines is available <http://www.iaea.org/Publications/Documents/Infcircs/2011/infcirc254r10p1.pdf>; for a preliminary analysis on how the new guidelines might affect normalisation of nuclear trade with India, see Horner D, ‘NSG revises rules on sensitive exports’, Arms Control Association, 5 July 2011, <http://www.armscontrol.org/20110627/NSG_Revises_Rules_on_Sensitive_Exports>. See also: ‘NSG public statement, Nuclear Suppliers Group Plenary, Noordwijk, the Netherlands, 23–24 June 2011’, <http://www.nuclearsuppliersgroup.org/Leng/PRESS/2011-06-Public%20statement%202011%20NSG%20v7%20-%20final.pdf>.

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38. In July 2011 the Atomic Energy Commission of India announced a major find of uranium ore. It is too early to say how this find will impact on the analysis in this section.

39. Nyimbona P, ‘Regional energy cooperation and integration in Africa: Challenges and opportunities’, presented by the UN Economic Commission for Africa (ECA) to the IAEA Meeting on Comprehensive Energy Planning Vienna, Austria, 30 October–3 November 2006,<http://www-tc.iaea.org/tcweb/abouttc/strategy/Thematic/pdf/presentations/energysystemplanning/Reg_Energy-Challenges_Opportunities.pdf>.

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41. These states have since signed or are considering signing bilateral nuclear cooperation deals with India that would allow uranium sales to India. See e.g. Jain A, ‘N-deal with India: Canada beats US in Toronto’, Rediff India Abroad, 17 January 2009, <http://www.rediff.com//news/2009/jan/17ndeal-with-india-canada-beats-us.htm>; Singh G, ‘After n-deal, Canadian uranium supplier sets up India office’, Business News, 2 December 2009,<http://blog.taragana.com/business/2009/12/02/after-n-deal-canadian-uranium-supplier-sets-up-india-office-5553/>; ‘Uranium exports to India by Australia on cards’, The Times of India, 16 December 2009,<http://timesofindia.indiatimes.com/india/Uranium-exports-to-India-by-Australia-on-cards/articleshow/5342421.cms>.

42. Bagla P, ‘Indian firm acquires uranium mining rights in Niger’, The Hindu, 19 August 2007, <http://www.wise-uranium.org/upin.html>. URL does not link to article given here, please check

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52. African Nuclear Weapon-Free Zone Treaty, Cairo, 11 April 1996. For the text of the Pelindaba Treaty see: UN General Assembly document A/50/426, electronically available from the IAEA website,<http://www.iaea.org/About/Policy/GC/GC40/Documents/pelindab.html>.

53. It is difficult to use other NWFZ Treaties as precedents for the role that the Pelindaba Treaty should play to guide African states’ position on India. The Rarotonga Treaty creates the South Pacific NWFZ and outlaws nuclear cooperation with non-NPT states. Member states of this Treaty have up to now treated the treaty as superseding the NSG waiver, thus choosing not to support nuclear cooperation with India. However, Australia's centre-right coalition of parties has indicated a willingness to overturn this position and export uranium to India, see: WISE Uranium Project, ‘Regulatory issues: Australia’, 2010,<http://www.wise-uranium.org/uregaus.html>.

54. United Nations, ‘Consideration of Africa as denuclearized zone’, United Nations General Assembly resolution 1652(XVI), 24 November 1961.

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58. Pelindaba is the place where the uranium enrichment process for South Africa's nuclear weapons was developed and in Zulu means ‘the issue is settled’.

59. Olunyeni Adeniji, former Nigerian foreign minister and chief draftsman of the Pelindaba Treaty, wrote an authoritative commentary on the negotiation process of the treaty. See: Adeniji O, ‘The Treaty of Pelindaba on the African-Nuclear-Weapons Free-Zone’, United Nations Institute for Disarmament Research, UNIDIR/2002/16, 2002.

60. For a timeline of events from 1960 to 2008 related to the ANWFZ, see Stott N & A du Rand, ‘The African Nuclear-Weapon-Free Zone Treaty: Abrief guide to the Pelindaba Treaty and the process of ratification’, Institute for Security Studies, Pretoria, 2008, pp. 2–3.

61. By October 2010, states that have signed and ratified the treaty include: Algeria, Benin, Botswana, Burkina Faso, Burundi, Equatorial Guinea, Ethiopia, Gabon, Gambia, Guinea, Ivory Coast, Kenya, Lesotho, Libya, Madagascar, Malawi, Mali, Mauritania, Mauritius, Mozambique, Nigeria, Rwanda, Senegal, South Africa, Swaziland, Tanzania, Togo, Tunisia, Zambia, Zimbabwe, Cameroon. States that have signed, but not ratified the treaty are: Angola, Central African Republic, Cape Verde, Chad, Comoros, Republic of the Congo, Djibouti, Democratic Republic of Congo, Egypt, Eritrea, Ghana, Guinea-Bissau, Liberia, Namibia, Niger, Seychelles, Sierra Leone, Somalia, São Tomé and Príncipe, Sudan and Uganda.

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64. This interpretation was proffered at a workshop hosted by the Institute for Security Studies titled ‘Beyond Entry-into-Force of the African Nuclear-Weapon-Free Zone Treaty: Establishing the African Commission on Nuclear Energy’, Pretoria, South Africa, 18–19 March 2010. The workshop was a high profile meeting of African diplomats working in the area of nuclear non-proliferation with some civil society organisations and was held under Chatham House rules – hence the precise source of this interpretation cannot be attributed.

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68. Taken together the Treaty of Tlatelolco (Latin America), Rarotonga (the South Pacific), Bangkok (South-East Asia), the Antarctic Treaty, and the Pelindaba Treaty (Africa) covers the Southern Hemisphere. Despite the fact that not all nuclear weapon states have signed the protocols to these treaties or that their nuclear armed patrol ships still enter seas below the equator, Brazil proposed a draft resolution on a ‘Nuclear Weapons Free Southern Hemisphere and Adjacent Areas’ at the 51st session of the UNGA, which was approved.

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