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Mine Ban Policy
Policy
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] after the defense committee issued its opinion in favor of the proposal in September 2011, with one dissenting opinion from the True Finns Party.[3] The defense committee stated 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. The defense 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.[4]
In November–December 2011, Finland attended the Mine Ban Treaty Eleventh Meeting of States Parties in Phnom Penh, Cambodia at a ministerial level as an observer, where it announced approval of the accession by the parliament and plans to deposit it with the UN in the coming weeks. Finland reported it would destroy its stockpile of antipersonnel mines “according to the provisions of the Ottawa Convention and fulfill also all other obligations set to a State Party by the Convention.” It stated it “will promote the universalization of the Ottawa Convention also in the future.”[5]
Finland attended the intersessional Standing Committee meetings of the treaty in Geneva in May 2012, where it reported on the deposit of its instrument of accession in January and finalization of “all the national constitutional measures required for the entry-into-force of the Convention.” It reaffirmed its commitment to comply fully with the treaty obligations and to promote further universalization. Finland also noted it intended to increase its funding contribution to mine action to reach the level of €6 million annually by 2014.[6]
Finland’s initial transparency report is due by 1 January 2013; in September 2012, Finland confirmed that it will submit its report by its treaty deadline.[7]
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
In 2011 and 2012, the Ministry for Foreign Affairs confirmed that Finland 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.[8] 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.[9]
In December 2010, information from the Ministry for Defense was released revealing for the first time the size and composition of Finland’s stockpile of antipersonnel mines.[10] 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.[11]
Finland started destroying its stockpile in August 2012 by open detonation at a camp in Finnish Lapland.[12] Finland did not provide additional details in regard to the destruction and noted that “the exact information on initial destruction of Finland’s stockpile will be made available in the connection of Finland’s first Convention report.” In September 2012, Finland said it will complete destruction of its stockpiles by the end of 2015.[13] 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.[14] According to the Ministry for Foreign Affairs, stockpile destruction is expected to cost approximately €220,000 (US$291,742).[15]
Finland said a key factor obstructing its accession to the treaty was the difficulty of procuring alternatives to antipersonnel mines.[16] 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.[17] The procurement of replacement systems started in 2009.[18] 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.”[19] The Defense 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.[20]
Retention
Finland has indicated it will retain 16,500 antipersonnel mines for training and research purposes over the next 20 years.[21] Finland has 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.[22] In September 2012, the Ministry of Foreign Affairs informed that the number of mines retained has not been revised. It noted that “Finland will report on the consumption of the mines according to the Convention.”[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]
[1] This came six years later than its initially stated goal. The decision to step back from the goal to join the treaty in 2006 was included in the Security and Defense Policy Review 2004, which was approved by parliament on 21 December 2004. The goal of joining the treaty by 2006 was first stated in December 1997, reiterated in December 1999 and December 2000, and confirmed by a government report on foreign and security policy approved by parliament in December 2001.
[2] Statement of Finland, Mine Ban Treaty Eleventh Meeting of States Parties, Phnom Penh, 28 November 2011.
[3] The defense committee heard from the minister of defense and representatives from the Ministry of Defense and Foreign Affairs, branches of the military, the Red Cross, and civil society including ICBL member the Peace Union of Finland. Parliament of Finland, “The Defence Committee’s opinion 2/2011 vp,” PuVL/2011 vp – HE 15/2011 vp, 28 September 2011, on “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011, www.eduskunta.fi.
[4] Ibid. Average exchange rate for 2010: €1=US$1.3261. US Federal Reserve, “List of Exchange Rates (Annual),” 6 January 2011.
[5] Statement of Finland, Mine Ban Treaty Eleventh Meeting of States Parties, Phnom Penh, 28 November 2011.
[6] Statement of Finland, Mine Ban Treaty, Standing Committee on General Status and Operation of the Convention, Geneva, 21 May 2012, www.apminebanconvention.org/intersessional-work-programme/may-2012/general-status-and-operation-of-the-convention/statements/?eID=dam_frontend_push&docID=14360.
[7] Letter from Markku Virri, Director, Unit for Arms Control, Political Department, Ministry of Foreign Affairs of Finland, 7 September 2012.
[8] Parliament of Finalnd, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011; and statements of Finland, Eleventh Meeting of States Parties, Mine Ban Treaty, Phnom Penh, 28 November 2011; Intersessional Standing Committee meetings, Geneva, 21 May 2012.
[9] Ministry of Defense, “Puolustusministeriön Jalkaväkimiinaselvitystyöryhmän Väliraportti” (“Interim report of Ministry of Defense working group on infantry landmines”), 19 December 2003, published 10 February 2004, www.defmin.fi.
[10] Ministry of Foreign Affairs, “Draft Government Bill to Parliament on the approval of the Ottawa Convention on Antipersonnel Mines,” 14 December 2010; and Parliament of Finland, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011.
[11] Parliament of Finland, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011; and letter from Markku Virri, Ministry of Foriegn Affairs of Finland, 7 September 2012. .
[12] “Finland Destroying Landmine Stocks,” yle (News service), 21 August 2012, www.yle.fi/uutiset/finland_destroying_landmine_stocks/6264853; and letter from Markku Virri, Ministry of Foreign Affairs of Finland, 7 September 2012.
[13] Letter from Markku Virri, Ministry of Foreign Affairs of Finland, 7 September 2012.
[14] Ibid.
[15] Parliament of Finland, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011; and Letter from Markku Virri, Ministry of Foreign Affairs of Finland, 7 September 2012. Average exchange rate for 2010: €1=US$1.3261. US Federal Reserve, “List of Exchange Rates (Annual),” 6 January 2011.
[16] See Landmine Monitor Report 2007, p. 821. The Security and Defense Policy Review 2004 stated that the Finnish Defense Force would be provided with €200 million in extra funding over eight years for replacements for mines, and the army would have to allocate an additional €100 million. The replacement process was to start in 2009 and continue until 2016. The review proposed to replace antipersonnel mines with close combat weapons and sensors.
[17] Parliament of Finland, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011.
[18] Ibid.
[19] Prime Minister’s Office, “Finnish Security and Defence Policy 2009, Government Report,” Publication 13/2009, 5 February 2009, www.vnk.fi.
[20] Parliament of Finland, “The Defence Committee’s opinion 2/2011 vp,” PuVL/2011 vp – HE 15/2011 vp, 28 September 2011, on “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011, www.eduskunta.fi.
[21] Ibid. The numbers retained are as follows: 9,000 Sakaramiina 65-98; 3,000 Putkimiina 43-95; and 4,500 Putkimiina 68-98.
[22] Parliament of Finland, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011.
[23] Letter from Markku Virri, Ministry of Foreign Affairs of Finland, 7 September 2012.
[24] Ibid.
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