Mine ban policy overview

The Republic of Finland deposited its instrument of accession to the Mine Ban Treaty on 9 January 2012, becoming a State Party on 1 July 2012.[1]

The parliament approved the accession documents on 25 November 2011,[2] following a favorable opinion by the defence committee which concluded that banning antipersonnel mines was justified on the basis of the significant human rights and humanitarian problems caused by their use and stated that accession to the Mine Ban Treaty would strengthen Finland’s foreign and security policy coherence.[3]

On 22 December 2011, Finland amended its penal code to implement the convention’s provisions in domestic legislation, including penal sanctions for violations of a minimum of four months imprisonment to a maximum of six years.[4]

In its initial Article 7 report, Finland reported the following additional measures to implement the convention: Standard Operating Instructions from the Finnish Defence Command published on 3 April 2012; an Army Command decision on decommissioning of antipersonnel mines published on 24 February 2012; and a decision of the Finnish Defence Command on the approval of a plan of destruction of its antipersonnel mines published on 25 October 2010.[5]

In December 2012, Finland attended the Mine Ban Treaty’s Twelfth Meeting of States Parties in Geneva, its first meeting as a full State Party to the convention. At the meeting, Finland reaffirmed its commitment to complete the destruction of its stockpile of antipersonnel mines by the end of 2015. It reiterated its pledge to promote the universalization and implementation of the convention, and expressly recognized the work of NGOs alongside States Parties as “instrumental” for the universalization of the treaty. Finland also confirmed its intention to increase its funding for mine action, subject to parliamentary approval, to the level of €6 million (US$7.7 million) annually by 2014.[6]

At the intersessional Standing Committee meetings of the treaty in Geneva in May 2013, Finland reiterated its commitments to complete stockpile destruction within its stated 2015 deadline and to work towards the convention’s universalization.[7]

Finland submitted its initial Article 7 report prior to its 1 January 2013 deadline. The report covers the period from 1 July–31 December 2012.[8]

Finland is party to the Convention on Conventional Weapons (CCW) and its Amended Protocol II on landmines. It is also a party to CCW Protocol V on explosive remnants of war.

Use, production, transfer, and stockpiling

Finland has stated on numerous occasions that it has never used antipersonnel mines and does not have any mined areas, has not produced antipersonnel mines since 1981, and has never exported antipersonnel mines.[9] Finland has not acquired any antipersonnel mines since the early 1970s. A 2003 European Union Joint Action has obliged Finland not to procure more antipersonnel mines.[10]

In 2010, information from the Ministry for Defence was released revealing for the first time the size and composition of Finland’s stockpile of antipersonnel mines.[11] This total was reaffirmed in mid-2012 when Finland disclosed that it stockpiled 1,029,763 antipersonnel mines banned by the treaty, comprising 801,618 Sakaramiina 65-98 blast mines as well as 228,145 Putkimiina 43-95 and Putkimiina 65-98 stake mines.[12]

In May 2013 and in its initial (2012) Article 7 report, Finland informed States Parties that it had destroyed 220,455 of its stockpiled antipersonnel mines. It stated that the remaining 809,308 antipersonnel mines would be destroyed by the Finnish Defence Forces before the end of 2015.[13]

Finland started destroying its stockpile in August 2012 by open detonation at a camp in Finnish Lapland.[14] From August until 31 December 2012, destruction continued at the Ähtäri army depot in central Finland and at Kittilä, an area in the north of the country which has been used for many years for the destruction of old ammunition and explosives. Finland reported that blast mines are to be destroyed by removing the fuze and metallic parts for recycling, with parts to be used during fire and explosion training. Stake mines are to be destroyed by open detonation.[15] According to the Ministry for Foreign Affairs, stockpile destruction is expected to cost approximately €220,000 (US$291,742).[16]

Finland said a key factor obstructing its accession to the treaty was the difficulty of procuring alternatives to antipersonnel mines.[17] The Ministry for Foreign Affairs has said a replacement for antipersonnel mines must be procured between 2009 and 2016 in order to maintain a credible defense.[18] The procurement of replacement systems started in 2009.[19] Finland’s 2009 Security and Defense Policy Review stated that “it is possible to replace a part of the landmines’ purpose with special munitions, Claymore mines and ground surveillance sensors as well as modern anti-tank mines.”[20] The Defence Committee concluded that a total of approximately €300 million (US$398 million) would allow adequate substitutions for antipersonnel mines to be procured and that it would be possible to remove these weapons without weakening Finland’s national defense.[21]

Retention

In its initial 2012 Article 7 report, Finland declared retaining 16,500 antipersonnel mines for training and research purposes.[22] Finland has previously stated that it considers retention of mines necessary for the development of and training in destruction techniques for mines used in areas near Finland or where Finland is operating in crisis management, and it plans to retain mines for these purposes over the next 20 years.[23]

Contamination from explosive remnants of war

Finland has stated that it does not have mined areas. However, according to the Ministry for Foreign Affairs, some areas may contain unexploded ordnance (UXO), which could include mines, left over from World War II. These areas with a risk of UXO are recorded.[24]

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

Finland continues to show interest in the Convention on Cluster Munitions and stated that it is considering the implications of joining. Finland has described the convention as “important from the humanitarian standpoint” and has expressed support for its goals and for “efforts towards its universalisation.”[1]

In September 2012, a Finnish official attending a meeting of the convention informed the CMC that the government’s top priority is to fulfill Finland’s obligations under the Mine Ban Treaty, which it acceded to on 9 January 2012. The official said that Finland continues to review the implications of joining the Convention on Cluster Munitions and cited Ministry of Defence concerns about replacing stockpiled cluster munitions as an obstacle to its accession.[2]

A 2009 government report on “Finnish Security and Defence Policy” found that the Convention on Cluster Munitions “significantly impacts Finland’s defence and its resource requirements.” According to the report, “Once a study relating to the Defence Forces’ capabilities has been completed,” the Convention on Cluster Munitions will be reassessed and the Cabinet Committee on Foreign and Security Policy will review the developments annually.[3]

Finland is party to the Convention on Conventional Weapons (CCW) and in the past supported efforts to adopt a CCW protocol on cluster munitions. It is not known if its position on joining the Convention on Cluster Munitions will be reviewed following the CCW’s failure to conclude a protocol on cluster munitions in 2011.[4]

Finland participated throughout the Oslo Process that created the Convention on Cluster Munitions, but consistently expressed reservations about the process and the convention text and was not supportive of a broad categorical ban on cluster munitions.[5] Finland joined the consensus adoption of the Convention on Cluster Munitions in May 2008 but five months later announced that it would not sign the convention in Oslo in December 2008.[6] At the time, Minister of Defence Jyri Häkämies stated, “cluster munitions play an important role in the credibility [and] autonomy…of Finnish defense.” The Finnish military claimed that due to costs and other factors it would not be possible to replace Finland’s stockpile of cluster munitions with alternative weapons within five to 10 years.[7] Finland has also cited security concerns over its border with Russia for its refusal to sign the convention.[8]

Despite not joining, Finland has continued to participate in the work of the Convention on Cluster Munitions since 2008. Finland has attended every meeting of States Parties of the convention as an observer, including the Third Meeting of States Parties in Oslo, Norway in September 2012. Finland participated in the convention’s first intersessional meetings in Geneva in June 2011 but did not attend those held in 2012 or 2013. Finland did not make any statements at these meetings.

Finland has not made a national statement to express concern at Syria’s use of cluster munitions, but voted in favor of a UN General Assembly (UNGA) resolution on 15 May 2013 that strongly condemned “the use by the Syrian authorities of...cluster munitions.”[9]

Use, production, transfer, and stockpiling

According to the Ministry for Foreign Affairs, “Finland does not produce cluster munitions nor has [it] used them.”[10]

In early 2005, Patria, a Finnish company, made arrangements to co-produce a 120mm cluster munition mortar bomb called MAT-120 then produced by the Spanish company Instalaza SA. The deal was canceled in 2009 by Patria and the Finnish Defence Forces after Spain signed the Convention on Cluster Munitions. During the development of the program, Patria imported to Finland 305 “live” MAT-120 from Spain in 2005–2007 and also acquired 230 inert MAT-120 bombs. As of July 2011, a total of 136 “live” MAT-120 remained in the custody of the Finnish Defence Forces; none of the MAT-120 imported to Finland were exported.[11]

In 2010, a Ministry of Defence official stated that information on the size and composition of Finland’s stockpile of cluster munitions was confidential.[12] Finland has acknowledged possessing one type of cluster munition, the DM-662 155mm artillery projectile, which contains 49 dual-purpose improved conventional munition (DPICM) submunitions with self-destruct fuzes.[13]

In 2006, the Ministry of Defence of the Netherlands announced the transfer of 18 multiple launch rocket system (MLRS) launchers to Finland.[14] It was reported that 400 M26 rockets (each containing 644 M77 DPICM submunitions) were to be included in the sale for qualification testing and conversion into training rockets.[15]

Contamination and Impact

Mines

In 1998, the Defense Staff of Finland stated in a press release that there were no peacetime minefields in the country.[1] In 2011, the Ministry of Defense informed the Monitor that there were no minefields along Finland’s eastern border, but acknowledged that both antipersonnel and antivehicle mines remained in the country from World War II.[2]

Cluster munition remnants and other explosive remnants of war

There are no reports of contamination from cluster munition remnants. According to the Ministry of Defense, “as far as they know,” no cluster munitions were used on Finnish soil.[3] However, other explosive remnants of war (ERW) remain from World War II as a result of action by German, Soviet, and Finnish military forces.[4] Most of the contamination is found on the former eastern battlefields and especially in the north of the country. Known battlefields and other dangerous areas are recorded in a database maintained by the defense forces. When former military areas are handed over for civilian use they are first cleared by the defense forces, if needed.[5]

Mine Action Program

There is no civilian mine action program in Finland. All clearance is conducted by the military, with occasional help from the police. No private companies are used for clearance.[6]

Land Release

In its latest annual transparency report in accordance with Article 10 of Protocol V on explosive remnants of war of the Convention on Conventional Weapons (CCW), Finland reported that, between April 2011 and April 2012, Finland destroyed more than 17,000 items of explosive ordnance in 290 interventions.[7]

Compliance with Article 5 of the Mine Ban Treaty

Under Article 5 of the Mine Ban Treaty, Finland is required to destroy all antipersonnel mines in mined areas under its jurisdiction or control as soon as possible, but not later than 1 July 2022. Finland’s initial Article 7 transparency report, which is due by 28 December 2012, will help to clarify whether Finland has any clearance obligations under the treaty.

In 2012, the Republic of Finland contributed €5,600,000 (US$7,201,040)[1] in mine action funding. As in previous years, the largest contribution in 2012 went to Afghanistan (€1,500,000/$1,928,850), with two additional states—Cambodia and Angola—receiving the equivalent of more than $1 million each.

In addition to global support, Finland provided support to six states and one other area through NGOs, the ICRC, the Geneva International Centre for Humanitarian Demining (GICHD), and the UN Voluntary Trust Fund for Assistance in Mine Action.

Contributions by recipient: 2012[2]

Finland allocated 71% of its mine action support in 2012 for clearance activities while 11% went to victim assistance in Chad, Lao PDR, and South Sudan. The other 18% went to the UN Mine Action Service and GICHD for core funding.[3]

Contributions by thematic sector: 2012

In 2008–2012, Finland’s contribution for mine action totaled more than €25 million (over $35 million), with an annual contribution averaging just over €5 million ($7.1 million).

Summary of contributions: 2008–2012[4]