Luxembourg was actively involved in the process to develop a Political Declaration on the use of explosive weapons in populated areas and was among the first group of states to endorse the Political Declaration in Dublin in November 2022.
Luxembourg made a written submission to the March 2021 consultation suggesting revisions to the draft Political Declaration including: the inclusion of “education” along with healthcare as essential services; the replacement of the term “urban warfare” with “armed conflict in populated areas” in Sections 1 and 4,; the replacement of the word “restricting” to “minimising” the use of explosive weapons on section 3; and that meetings to review the implementation of the Declaration should be organised regularly on a voluntary and informal basis with civil society organisations, instead of “on a regular basis” as suggested in the original draft. 1 During the fourth consultation in April 2022, Luxembourg praised the commitment to collect and share information. It also reiterated that the Declaration is not an end in itself, but a step aimed at protecting civilians better in armed conflicts under all circumstances. 2 Luxembourg reiterated this at the signing ceremony in Dublin in November 2022, when it also commended the work of the UN, ICRC and civil society in the process of the Political Declaration. 3
Statements and positions
Luxembourg attended the first international follow-up conference on the Political Declaration in Oslo, Norway in April 2024, and the second implementation conference in San Jose, Costa Rica in November 2025.
Luxembourg has frequently spoken on explosive weapons in populated areas in multilateral forums. At the Un General Assembly First Committee in 2025, Luxembourg encouraged all states to endorse the Political Declaration, emphasising that civilian populations and critical infrastructure represent most of the damage caused by explosive weapons and citing Gaza as an example of this. 4 At the January 2022 UN Security Council open debate on war in cities, Luxembourg welcomed the development of the political Declaration and said it would support a Declaration in which states commit to refraining from the use of explosive weapons in populated areas. 5 In 2013, at the UN Security Council open debate on the protection of civilians in armed conflict, Luxembourg condemned the use of explosive weapons in densely populated areas 6 and in 2016, it highlighted the impact of those weapons on schools and hospitals. 7
As a member of the European Union (EU), Luxemburg has signed onto numerous joint statements condemning the use of explosive weapons in populated areas and the harms it causes to civilians and civilian objects, as well as calling for greater IHL compliance and welcoming the Political Declaration. This includes at several UN Security Council open debates on the protection of civilians in armed conflict 8, including in 2024 when it expressed deep concern about the use and humanitarian consequences of explosive weapons in populated areas ‘which has significant civilian impact and should thus be restricted and avoided’9 as well as at the 2022 UN Security Council open debate on war in cities where the EU expressed concern over the indiscriminate use of explosive weapons in populated areas, including near hospitals, schools, and universities 10 and at the UN General Assembly’s First Committee. 11
As a member of the Group of Friends on Protection of Civilians, Luxembourg has supported statements at the UN Security Council open debate on the Protection of Civilians in Armed Conflict stressing the importance of respecting IHL and the need to enhance the protection of civilians. 12 In 2024, the Group highlighted the harm caused by explosive weapons in populated areas across ongoing conflicts and stressed that “the effective protection of civilians and civilian objects must be made a strategic priority in the planning and conduct of military operations.” To that end, the Political Declaration was identified as providing “practical tools that ensure that protection is real and effective,” a sentiment the Group echoed at the 2025 debate where it flagged the Political Declaration as a tool that “plays a critical role in the protection of civilians” and encouraged states to consider endorsing. 13 Luxembourg also endorsed the Ireland-led joint statement during the 74th session of the United Nations General Assembly’s First Committee in 2019 which encouraged states to participate in international efforts to address the impacts of the use of explosive weapons in populated areas on civilians, including by working towards the creation of an international Political Declaration on this issue. 14
Luxembourg also aligned with the World Humanitarian Summit Core Commitments to ‘Uphold the Norms that Safeguard Humanity’ in May 2016. This included the commitment “to promote and enhance the protection of civilians and civilian objects, especially in the conduct of hostilities, for instance by working to prevent civilian harm resulting from the use of wide-area explosive weapons in populated areas, and by sparing civilian infrastructure from military use in the conduct of military operations.” 15 Luxembourg also aligned with the Commitment 123002 at the World Humanitarian Summit in May 2016, reinforcing the commitment to data collection on the impacts of explosive weapons in populated areas, to exchange of best practices, and to explore effective measures to ensure respect for international humanitarian law (IHL), including a Political Declaration on the issue. 16
Implementation of the Political Declaration
In February 2024, INEW and EWM conducted a survey into endorser states' national efforts to disseminate and implement the Political Declaration; and in May 2025 EWM conducted a second survey. 17 Responding to these surveys, Luxembourg reported that a national focal point, namely the Security Policy Desk within the Directorate of Political Affairs at the Ministry of Foreign and European Affairs, Defence, Development Cooperation and Foreign Trade (MFA) had been designated and was responsible for overseeing efforts related to the Declaration and EWIPA more broadly. 18 Luxembourg’s MFA had disseminated the Political Declaration, in coordination with the Ministry of Defence and the Ministry of Development, and that the MFA regularly engages with non-governmental organisations on explosive weapons in populated areas to “explore in more depth both the opportunities and challenges related to the Political Declaration."19 It reported that no further “specifically targeted activities” for dissemination were planned, in large part due to lack of personnel. In terms of victim assistance, Luxembourg continues to provide annual financial contributions to global victim-assistance initiatives under mine action. 20
Luxembourg stated that it has reviewed existing laws, policies, codes, approaches, practices or similar relevant to the protection of civilians, to identify areas where further policy development is necessary to meet the commitments under the Political Declaration and has further developed its disarmament and proliferation policies. Luxembourg maintains a non-offensive defence posture, with armed forces limited to support and transport roles, and its armed forces do not possess heavy artillery or other heavy explosive weaponry.” Luxembourg emphasised, however, that any further developments of its military equipment or doctrine will take into account “its adherence to the” Political Declaration and that it is “bound by the rules and principles governing the use of weapons in armed conflict.” 21
Luxembourg also reported that it regularly references explosive weapons in populated areas in statements and advocates for its inclusion in joint statements across relevant multilateral fora. In addition, Luxembourg shared that its armed forces provide and facilitates support to victims and communities affected by armed conflict, and that its Armed Forces de-mining service is actively engaged in awareness raising pertaining to the risks of explosive remnants of war within its domestic population and civilian personnel. It also reported that it regularly contributes to projects coordinated by the EU, UN and OSCE to address the challenges posed by the explosive remnants of war and financially supports civil society organisations taking on this work. 22