Key developments
since March 1999: A total of 622 hectares of land were cleared in 1999,
with an additional 255 hectares January-March 2000. Almost 90,000 UXO and mines
were destroyed in 1999, with about 25,000 more January-March 2000. There were
102 new UXO/mine victims in 1999, and 68 in the first five months of 2000.
Almost 180,000 people received UXO/mine awareness education in 1999.
Mine Ban Policy
The Lao People’s Democratic Republic (Laos)
has not acceded to the 1997 Mine Ban Treaty. Laos did not participate in the
Ottawa Process. Laos has been absent from every vote on pro-ban resolutions in
the UN General Assembly since 1996, including the December 1999 resolution
supporting the Mine Ban Treaty. Laos is not known to have made any public
statements regarding a mine ban in 1999 or 2000. Laos did, however, attend the
ban treaty intersessional Standing Committee of Experts on Mine Clearance
meetings in September 1999 and March 2000 in Geneva. Laos acceded to the
Convention on Conventional Weapons on 3 January 1983, but has not ratified the
Amended Protocol II on landmines.
Production, Transfer, Stockpiling, Use
Laos is not thought to have ever produced or
exported antipersonnel mines. Laos is believed to maintain a stockpile of
mines, but no details are available. There are no allegations of recent use of
antipersonnel mines by Laotian armed forces.
Landmine/UXO Problem
The primary threat to civilians in Laos is
unexploded ordnance (UXO), not antipersonnel mines, though both are present. To
the civilian population, there is little or no difference between the two. The
massive problem with unexploded ordnance is the result of extensive U.S. bombing
during the Indochina War, especially during the period from 1964 to 1973.
Bomblets (or “bombies as they are known to the Lao people) from U.S.
cluster bomb units became de facto antipersonnel mines when they did not
explode on impact as designed. It is often said that there are millions of
unexploded bombies, and in 1996 the UN estimated that 500,000 tons of UXO were
still present in Laos.[1]
However, UXO Lao, the national coordinating body, has expressed concern that the
real number of UXO in Laos remains unknown and that the very rough hypotheses
put forth cannot be
substantiated.[2]
Handicap International (HI), which in 1997 released the results of an
extensive national survey of villages, found that over 3,800 villages, with a
population of 1.3 million people, had been affected by UXO and mines. HI
stated, “More than 1,000 villages reported the presence of landmines in
the past with 214 villages currently reporting landmine
contamination.”[3] For
extensive additional details from the HI study, see Landmine Monitor Report
1999. The UXO problem continues to be so serious in Laos that it remains a
daunting obstacle to development by adding hazards, time and expenses to
virtually any new economic
activity.[4]
UXO Lao notes that in Laos casualty rates are not the predominant issue, nor
the best way to assess the problem: “The Lao government, UNDP and the NGOs
working in the programme increasingly understand that land denial and barrier to
development are more pressing.... The effects UXO has on food production,
infrastructure development, water and sanitation, school and hospital
extensions, etc. are
profound.”[5]
Mine/UXO Coordination
In February 1996 the government established a
national office, simply called UXO Lao, with the following tasks: (1) create a
national capacity for UXO activities; (2) implement a national UXO strategy and
demining projects; and (3) coordinate UXO clearance, awareness and survey
projects throughout the
country.[6] With a staff of
more than 1,000 people, UXO Lao is one of the country’s largest
employers.[7] The Ministry of
Labor and Social Welfare is the executing agency responsible for the
implementation of the Lao national UXO program.
UXO and mine clearance has been carried out with both technical and financial
assistance from international agencies that are implementing partners (IPs) in
the development of the UXO Lao program. UXO Lao has assigned particular
provinces to these IPs who work alongside the Lao staff in the field and local
offices. In every province with clearance activities, UXO Lao has a Provincial
HQ that employs all the field staff, and is managed by Lao staff, with the
IP’s assistance.
Mine/UXO Clearance
See Landmine Monitor Report 1999 for a
description of mine/UXO clearance programs from 1996 to early 1999.
UXO Lao reports that in 1999, 89,093 UXO and mines were removed from the
ground and destroyed. A total of 622 hectares of land were cleared. More than
951,000 people benefited from the clearance
operations.[8] UXO Lao also
reports that from January-March 2000, a total of 255 hectares of land were
cleared, benefiting 51,140 persons. A total of 25,163 mines and UXO were
destroyed.[9]
Those IPs conducting mine/UXO clearance activities in Laos in 1999 and 2000
include:
Mines Advisory Group (MAG), a UK based NGO, has been working in Xieng
Khouang province since 1994 and in Saravane province since 1997. MAG's
operations were initially encouraged, supported, and facilitated by the
Mennonite Central Committee. MAG has trained and employed well over 200 Lao
nationals, men and women, to address the massive problem of UXO contamination.
Following a phased approach, MAG is now in the process of handing over
employment responsibility for the staff to UXO LAO. At the end of 1999, MAG's
staff in Saravane were transferred to the national body. In May 2000, staff
working in Xieng Khouang were transferred. Other assets will be transferred
through December 2000. In the one-year period between September 98 and August
99, over 19,000 items of UXO were found, unearthed and destroyed in Saravane. In
Xieng Khouang, MAG destroyed over 21,000 items through the period November 1998
to October 1999.[10]
MAG continues to provide management training for national staff, and is
concentrating this year on further technical training, quality assurance and
support. MAG now directly employs 28 national staff, in addition to the
supervisory role it currently carries out with regard to the UXO LAO technical
staff that have recently been transferred. In coordination with UXO LAO - with
funds provided by the Danish Government - MAG is to continue clearance &
awareness in six of Xieng Khouang's seven districts during
2000.[11]
Handicap International, an NGO based in France, is providing technical
assistance to UXO Lao clearance operations in Savannakhet Province, particularly
in the four most affected districts on the Ho Chi Minh Trail. Its main
objective is to provide capacity building for the establishment, coordination
and management of a provincial UXO clearance program. During 1999, five
technical advisors provided training to ninety Lao deminers and supervised the
clearance operations. The teams cleared a total of 128 hectares, including
schools and agricultural land. Mobile roving teams visited 292 villages to
destroy a total of 12,000 UXOs, among them 6,000
bombies.[12] The European Union
funds HI.[13]
Norwegian People’s Aid, an NGO, has been operating in Sekong
province since late 1997 and in Attapeu since 1998 providing on-the-job training
to the UXO Lao staff. Its aim is to further develop the capacity of the
provincial Lao staff so they can manage and implement all facets of the program.
NPA has supported UXO Lao with a financial management position since 1998 and is
currently focusing on developing a mid-management training program for national
EOD staff. It receives financial assistance from the Norwegian
government.[14]
World Vision Australia, an NGO, started operating in Khammouane
province in 1999 with the support of the Australian Aid agency (AusAID)
providing technical advice and capacity-building to manage the programs at
provincial levels.
Gerbera, a German commercial company (supported by the German
government through a bilateral agreement with Laos) has been working in the
provinces of Houaphan since 1996 and Luang Phrabang since 1998 providing
clearance and awareness.
The government of Belgium has provided in-kind contributions of
qualified Explosive Ordnance Demolition military staff to support UXO
Lao’s provincial staff in Champassak province since
1998.[15]
In addition to UXO Lao and its implementing partners, the following agencies
also conduct UXO/mine related activities:
Milsearch, a commercial company, is undertaking surveys and clearance
for private companies in eight provinces. Interests are in oil exploration,
mining, hydraulic construction sites, village relocation and road and bridge
building.[16]
The exploration company Hunt Oil has also carried out surveys in four
provinces with assistance from the British firm CGG-Exploration
Logistics.[17]
Lao Armed Forces also undertake clearance
operations.[18]
(See Table below of Expected Clearance Projects and Donor Mechanisms for
2000-2002).
Some foreign UXO clearance personnel in Laos have complained that the United
States has been reluctant to share its "render safe
procedures."[19] However, UXO
Lao reports, “All requested safe procedures have been provided by the U.S.
government during 2000 and distributed to the field staff and NGO technical
advisors.”[20]
Training Lao Nationals
UXO Lao trains Lao staff at a training center in Ban Ylai. Until January
1999, the center was in Nam Souang. Financial and technical assistance has been
provided by the United Nations, U.S. military personnel, other governments and
NGOs.[21] All candidates for
training are selected from the provinces and districts that they will return to
work in. Criteria for selection includes basic education but also the
knowledge of a local minority language. Around 1,000 Lao nationals have
graduated from the center with skills in UXO clearance, community awareness,
paramedical techniques and team
leadership.[22]
Mine/UXO Awareness
UXO Lao has a Community Awareness (CA) section to
provide UXO risk awareness education. UXO Lao reports that in 1999 a total of
178,846 persons were provided UXO awareness information, from a total of 746
villages.[23] Between 1996 and
1998, 953 villages were visited and more than 233,000 people educated. UXO Lao
also reports that from January-March 2000, UXO awareness was provided to a total
of 41,650 people.[24] UXO Lao
currently has 18 CA teams operating with a total of 108
staff.[25]
Besides clearance, MAG is also carrying out UXO awareness programs through a
community awareness team travelling from village to village conducting
workshops, demonstrations and puppet shows to help inhabitants develop safer UXO
skills. Gerbera is also carrying out awareness as well as clearance programs. A
U.S. NGO, Consortium, has developed and piloted a draft UXO in-school curriculum
and teacher training package in cooperation with the Ministry of Education,
USAID and UNICEF. In addition, Consortium has also used child-to-child
approaches in creative arts workshops and children performed puppet shows.
UNICEF is implementing a mass media campaign targeting the nine most affected
provinces using national radio and television, in addition to traditional media.
The Mennonite Central Committee is also involved in UXO awareness activities
include.
UXO Lao’s Action Plan for Year 2000
UXO Lao has set a summary of targets for 2000, in addition to those of
routine programs and capacity building tasks:
Community awareness teams to visit 759 villages, briefing more than 190,000
people.
Land clearance teams to clear 1,005 hectares of high priority agricultural
and development land.
Roving clearance teams to carry out 857 village visits, destroying more than
100,000 UXO.
Training and equipping an additional 158 deminers, 17 medics, 20 surveyors
and additional provincial support staff.
Expansion by four new district-structured organizations. (Achieved).
Complete the transfer of all national field staff from implementing partner
to UXO Lao contracts. (Achieved).
Put into place mechanisms ready to take over the responsibility for running
costs, equipment, and support functions from the implementing partners MAG and
Gerbera.
Introduce advanced EOD courses at the national training center (delayed from
1999).
In 1995 the Lao government established a Trust
Fund to finance a nationwide program of UXO/mine clearance and awareness. UXO
Lao reports that the following governments have contributed either to the Trust
Fund or bilaterally:[27]
Australia, Belgium, Canada, Denmark, Finland, France, Germany, Japan, Laos,
Luxembourg, Netherlands, New Zealand, Norway, Sweden, United Kingdom and United
States, as well as the European Union. The UN Development Program, UNICEF, and
UNV have also contributed to the
program.[28]
The United States has been the largest donor. From 1994-1999, the U.S.
provided $13.95 million in assistance for UXO/mine clearance, (28% of total
contributions). The total in 1999 was $3.3 million, including funds provided by
the Defense Department, State Department, and Agency for International
Development. U.S. funds are also used in victim assistance programs in
Laos.[29] UXO Lao has stated
that while the U.S. government has been one of the most consistent donors to UXO
Lao, “There are some Lao sensitivities about accepting some U.S. aid.
There have been some components of U.S. assistance that the Lao government has
chosen not to
accept.”[30]
In 2000, UXO Lao has budgeted $12.2 million for UXO clearance and awareness
activities for the national program (nine provinces, Training Centre and
National Office) -- $6.3 million Trust Fund and Bilateral; $5.9 million
Implementing Partner.[31]
UXO Lao provides the following table of projects and expected funds for
2000-2002:[32]
Province
Donor and Mechanism
Budget per Year
Funds Available
Shortfall
Xieng Khouang (MAG)
Denmark
Trust Fund
2000: 1,165,312
2001: 600,000
2002: 600,000
1,165,312
0
600,000
600,000
Houaphan (Gerbera)
Germany bilateral fund
2000: 470,000
2001: 500,000
2003: 500,000
470,000
0
500,000
500,000
Luang Phrabang
(Gerbera)
Germany
Bilateral fund
2000: 470,000
2001: 500,000
2002: 500,000
470,000
0
0
330,831
Khammouane
(World Vision Australia)
Australia
Bilateral fund
2000: 450,391
2001: 424,420
2002: 400,000
450,391
424,420
400,000
0
650,000
600,000
Savannakhet
(Handicap International)
European Union
Bilateral fund
2000: 843,634
2001: 650,000
2002: 600,000
843, 634
415,969
600,000
600,000
Saravane (MAG)
UK
Bilateral fund
2000: 1,133,969
2001: 600,000
2002: 600,000
718,000
0
215,000
250,000
Sekong (Norwegian People’s Aid)
Norway
Bilateral (pledge)
2000: 425,000
2001: 425,000
2002: 250,000
425,000
210,000
Attapeu (Norwegian People’s Aid)
Norway
Bilateral (pledge)
2000: 425,000
2001: 425,000
2002: 250,000
425,000
210,000
Campassak (Belgium Military)
Belgium
bilateral fund
2000: 500,000
2001: 500,000
2002: 500,000
500,000
500,000
500,000
Mine/UXO Casualties
For 1999, UXO Lao reported 63 UXO/mine accidents
resulting in 102 victims (26 deaths and 76 injuries). Among the victims, 60 were
children and 84 were male.[33]
For the first five months of 2000, there were 39 reported accidents causing 68
victims (26 deaths and 42 injuries). The victims included 25 children and 56
males.[34] It should be noted
that it is not possible to know with certainty the exact number of casualties,
as many villages do not report them.
Handicap International’s survey concluded that from 1973-1996, there
were 1,171 people who suffered landmine accidents, and another 9,473 who
suffered UXO accidents (a total of 10,644
victims).[35] A report released
in early 2000 had similar findings, stating that since 1973 UXO have killed or
maimed 11,928 Lao
people.[36]
The HI report also noted that one-third of all recorded UXO accidents
occurred in the first four years following the war (1973-1976), with an average
of three accidents per day. In the following ten years (1977 to 1986), the
annual casualty rate declined to an average of one accident per day. From 1987
to 1996, the annual casualty rate remained constant, averaging about 240
accidents per year.[37]
Survivor Assistance
Prostheses, orthoses, wheelchairs, and other
assistive devices are provided by the Cooperative Orthotic and Prosthetic
Enterprise (COPE) which is a partnership between the Ministry of Public Health,
POWER, the International Limb Project, World Vision, the Cambodian School for
Prosthetics and Orthotics and the Association (CSPO) for Aid and Relief (AAR).
COPE grew out of the work of POWER, which established in Laos in 1995, conducted
a complete survey of amputees and other disabled, and of facilities available to
serve them. In early 1996 it drew together the other partners in COPE which
started operation at the beginning of 1998. The work of COPE is governed by a
National Plan of Action, prepared by all of the partners. The plan has recently
been extensively revised (NPA-FR) given the achievement of most of the early
objectives.
As a result of the COPE Program, five orthoprosthetic centers have been, or
are being, completely renovated and upgraded (Vientiane, Luang Phrabang,
Phonsavane, Savannakhet and Pakse) and new equipment has been installed
throughout. Existing staff have undergone training and twelve students have
been sent for training to CSPO. In addition, significant awareness-raising work
has been undertaken throughout the country. Whilst refurbishment and training
has been in progress, production has been lowered, and only about 400 prosthetic
devices were fitted in 1999.
The NPA-FR contains a wide-ranging program for all mobility disabled in the
Lao PDR, including UXO victims. The program includes upgrade training for
orthopædic surgeons, training for physiotherapists and occupational
therapists, vocational training for disabled people, quality control mechanisms
for each center, a sports development element, and strengthening of the Lao
Disabled People’s Association.
[38] The Lao Disabled Peoples
Associationis an adjunct of the Ministry of Labour and Social Welfare.
It’s constitution has yet to be approved by the Ministry, but it is active
and has recruited 300 members in Vientiane Municipality, Vientiane Province, and
Bolikhamxay Province. The National Committee for Disabled Persons (NCDP) was
established in 1995.
There is no standard follow-up for amputees receiving prostheses from the six
centers functioning in Laos.[39]
On the other hand, the COPE program serves a wide range of areas, provides
upper-limb prostheses and has regular, six-monthly follow-up evaluations.
HI is training eleven local physiotherapists in Vientiane
Hospital.[40] The Ministry of
Health does not officially recognize physiotherapy, nor do individual doctors or
the population at large. Such recognition would be a big step for NGOs wishing
to help victims as it would enable them to approach more easily victims and the
whole of the population affected by
mines.[41]
The World Rehabilitation Fund works to establish an integrated approach to
physical and psycological rehabilitation, and to provide alternative livlihoods
for for mine victims. Civilian victims of mines and UXO do not receive
socio-economic assistance from the government, although military victims receive
some assistance. The COPE program refunds all travel and accommodation costs for
all persons attending any of its five centers, and all devices are provided free
of any charge.
[1] Jim Monan, Curse of the Bombies: A Case
Study of Saravan Province, Laos (Hong Kong: Oxfam Hong Kong, 1998), p.
14. [2] UXO Lao letter to Landmine
Monitor, 15 June 2000. [3] Handicap
International, Living with UXO: Final Report National Survey on the
Socio-Economic Impact of UXO in Lao PDR, 1997, p.
7. [4] Kieko Matteson and Robert
Perkinson, “The Remnants of War: The deadly legacy of America's air war in
Laos,” Boston Review, undated, circulated on icblmedia@egroups.com, 30
March 2000. Can be found at
http://bostonreview.mit.edu:80/BR25.1/matteson.html. [5]
UXO Lao letter to Landmine Monitor, 15 June
2000. [6] Statement by H.E. Mr.
Alounkèo Kittikhoun, Ambassador of Lao PDR to the United Nations, to the
UN General Assembly, New York, 17 November
1998. [7] A figure of 1,015 is cited in
Daniel Lovering, “Laos Faces decades of unexploded bombs,” Globe,
Paksong, Laos, 11 June 2000. See also “Laos sees new lease of
life,” Issues, 7 March 2000. [8]
UXO Lao, “Progress Summary Report, 1 January-31 December 1999.”
Also, UXO Lao letter to Landmine Monitor, 15 June 2000. The total included just
2,176 mines and 86,917 UXO. [9] UXO Lao,
“Progress Summary Report, March
2000.” [10] Information on
MAG’s activities in Laos provided to Landmine Monitor via email from Tim
Carstairs, MAG Communications Director, 28 July 2000
[11] Handicap International Laos,
“Annual Report,” 1999; with additional information provided by UXO
Lao, Nigel Orr, email response to Landmine Monitor, 18 July
2000. [12] Handicap International
Activity Report 1999. [13] UXO Lao,
Nigel Orr, email response to Landmine Monitor, 18 July
2000. [14]
Ibid. [15]
Ibid. [16] Information from Milsearch,
1998. [17]
Ibid. [18] Handicap International,
Living with UXO, 1997. [19] Kieko
Matteson and Robert Perkinson, “The Remnants of War: The deadly legacy of
America's air war in Laos.” [20]
UXO Lao letter to Landmine Monitor, 15 June
2000. [21] Ibid., U.S. military
technical assistance ended in September
1999. [22] UXO Lao, Nigel Orr, email
response to Landmine Monitor, 18 July
2000. [23] UXO Lao, “Progress
Summary Report, 1 January-31 December
1999.” [24] UXO Lao,
“Progress Summary Report, March
2000.” [25] UXO Lao, Nigel Orr,
email response to Landmine Monitor, 18 July
2000. [26] Lao National UXO Program, UXO
Lao, Work Plan 2000, Vientiane, Lao PDR, March 2000. Also, UXO Lao, Nigel Orr,
email response to Landmine Monitor, 18 July
2000. [27] UXO Lao letter to Landmine
Monitor, 15 June 2000. [28] UXO Lao,
Nigel Orr, email response to Landmine Monitor, 18 July
2000. [29] U.S. Department of State,
“FY 2000 NADR Project Status.” UXO Lao indicates the U.S. provided
$2.5 million in 1999 in clearance equipment and training support. UXO Lao
communication to Handicap International. 15 June
2000. [30] UXO Lao letter to Landmine
Monitor, 15 June 2000. [31] UXO Lao,
Nigel Orr, email response to Landmine Monitor, 18 July
2000. [32] Lao National UXO Program, UXO
Lao, Work Plan 2000, pp. 28-30, Vientiane, Lao PDR, March
2000. [33] UXO Lao letter to Landmine
Monitor, 15 June 2000. [34] UXO Lao,
“Summary Report of UXO Accidents, 1 January-31 May 2000” and UXO Lao
letter to Landmine Monitor, 15 June
2000. [35] Handicap International,
Living with UXO, p. 28. [36] Kieko
Matteson and Robert Perkinson, “The Remnants of War: The deadly legacy of
America's air war in Laos.” [37]
HI, Living with UXO, p. 25. [38]
Information on the COPE program provided to Landmine Monitor via email by Mike
Boddington, POWER, 31 July 2000. [39]
Amy Talbott, Landmine Survivors Network, “Landmine/UXO victim assistance
in the Lao PDR—General overview,” Vientiane, February
1998. [40] Handicap International
Activity Report 1999. [41] Handicap
International Internal Report, Brussels, Belgium, March 2000.
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