Key developments since May 2003: In September 2004, Bhutan’s
Foreign Minister stated that Bhutan would accede to the Mine Ban Treaty in 2005.
Bhutan attended the Fifth Meeting of States Parties in September 2003, its first
participation in a Mine Ban Treaty meeting. Bhutan for the first time
officially stated that it has never produced, acquired, or stockpiled
antipersonnel mines. In December 2003, during a Bhutanese military offensive to
oust Indian rebels from their bases in Bhutan, there were reports of use of
landmines by the rebels.
The Kingdom of Bhutan has not acceded to the Mine Ban Treaty. Bhutan
attended the Fifth Meeting of States Parties in September 2003, marking the
first time it participated in a Mine Ban Treaty meeting. Its representative
told Landmine Monitor, “As a peace loving country Bhutan shares the goals
of the Mine Ban Treaty. There are no problems to accede, only a matter of
priorities.”[1] He said
that the instrument of accession needs to be tabled and approved by the
Parliament during its only annual session. However, accession did not make it
on to the agenda for the 2004 legislative session. A delegate from Bhutan
attended the treaty intersessional meetings in June 2004, but reported no
progress toward accession.
In communications with the treaty’s Implementation Support Unit (housed
at the Geneva International Center for Humanitarian Demining) in August 2004,
the Permanent Mission of Bhutan in Geneva indicated that Bhutan intends to
accede to the Convention but will not be able to do so until its national
assembly next meets in
mid-2005.[2]
In September 2004, Bhutan’s Foreign Minister sent a letter to the
Foreign Minister of Austria stating, “I am pleased to inform you that the
Kingdom of Bhutan intends to accede to the [Mine Ban Treaty] in 2005. I shall
accordingly be handing over to the United Nation’s Secretary General in
September this year a letter of intent to this effect on behalf of the Royal
Government... We would, therefore, like to assure the international community
of our strong commitment to end the suffering caused by anti-personnel
mines.”[3] The Minister
also indicated that Bhutan would participate in the first Review Conference in
November-December 2004.
Bhutan has voted in favor of all pro-ban UN General Assembly resolutions
since 1996, including UNGA Resolution 58/53 on 8 December 2003.
During 2003 Bhutan was approached by Austria, Canada, and Japan, which urged
the Kingdom to accede before the First Review Conference in November
2004.[4] In May 2004, Austrian
Ambassador Wolfgang Petritsch, President-designate of the First Review
Conference, visited Bhutan. In July 2004, retired Indian Ambassador
Satnam Singh visited Bhutan on behalf of the UN Mine Action Service, and met
with the Prime Minister and Foreign Minister, among others. He was assured that
Bhutan intends to join the Mine Ban Treaty, and that the only obstacles are the
capacity to draft the requisite legislation and to complete the internal
procedures quickly.[5]
A Foreign Ministry official told Landmine Monitor in September 2003 that
Bhutan has never possessed, produced, or acquired antipersonnel mines, and it is
not mine-affected.[6] This was
the first public confirmation of Bhutan’s status as a non-producer and
non-stockpiler. Similarly, various officials emphasized to Ambassador Singh in
July 2004 that Bhutan is fully supportive of the Convention, that it is neither
a user nor a producer of antipersonnel mines, and is not
mine-affected.[7]
The Royal Bhutan Army receives training from India and it is not known if
this training includes mine laying and mine clearance techniques, or whether
Indian forces stockpile mines in Bhutan to support training activities.
In 2003, there were some reports of use of landmines by armed opposition
groups from the northeast Indian state of Assam, including the United Liberation
Front of Assam (ULFA), the National Democratic Front of Bodoland (NDFB), and the
Kamtapur Liberation Organization (KLO). These groups have maintained their
bases in Bhutan for more than a decade. On 15 December 2003, Bhutanese forces
launched a military offensive to evict some 3,000 Indian rebels operating from
about 30 camps in southern Bhutan. Media reports cited an official Bhutanese
statement claiming that rebel “camps are usually guarded by a series of
outposts and
landmines.”[8] A
Bhutanese military officer said the rebels were “using explosives and
landmines to obstruct our build-up in key
locations.”[9] The
director of Bhutan’s Ministry of Foreign Affairs was quoted as saying that
“the area leading up to the [ULFA] camps is heavily
mined.”[10] Another
report said that some captured ULFA militants had surrendered a variety of
weapons, including three
landmines.[11] Landmine Monitor
has not received any reports of landmine casualties before, during, or after the
military operations.
Landmine Monitor has reported in the past that several Indian rebel groups
inside Bhutan possess landmines and/or improvised explosive devices, and there
was at least one previous report of use of mines by Indian rebels inside
Bhutan.[12]
In July 2001, six Bhutanese nationals were killed and eight injured in a
landmine incident after a government vehicle triggered a landmine in India's
Assam state, three kilometers from the India-Bhutan
border.[13]
[1] Interview with Sangye Rinchhen,
Ministry of Foreign Affairs, Bangkok, 19 September 2003. Rinchhen also said
that a department within the government in charge of international treaties was
created only recently and that environmental conventions were the
priority. [2] Email to Steve Goose
(HRW/ICBL) from Kerry Brinkert, Manager, Implementation Support Unit, 18 August
2004. [3] Letter n. ICTD-4(e)/655 to
H.E. Mrs. Benita Ferrero Waldner, Minister of Foreign Affairs of Austria, from
H.E. Lyonpo Khandu Wangchuk, Minister of Foreign Affairs, Royal Government of
Bhutan, 10 September 2004. [4]
Interview with Sangye Rinchhen, Ministry of Foreign Affairs, 19 September
2003. [5] Email to Steve Goose
(HRW/ICBL) from Amb. Singh, 18 July 2004.
[6] Interview with Sangye Rinchhen,
Ministry of Foreign Affairs, 19 September
2003. [7] Ambassador Satnam Singh,
“Mission Report – Bhutan,” (undated). The mission on behalf
of UNMAS was conducted 11-15 July
2004. [8] Kamil Zaheer “Bhutan
kills 20 Indian rebels in fighting,” Reuters (Calcutta), 17 December 2003;
“India rebels offer to quit Bhutan,” BBC, 17 December 2003;
“Landmines halting Bhutanese troops in UFLA crackdown,” India
Monitor, 17 December 2003; “Centre rejects UFLA’s talks
offer,” The Hindu, 29 December
2003. [9] “India rebels offer to
quit Bhutan,” BBC, 17 December
2003. [10] “Landmines halting
Bhutanese troops,” India Monitor, 17 December
2003. [11] “Centre rejects
ULFA’s talks offer,” The Hindu, 29 December
2003. [12] One 1999 report stated that
the insurgents “allegedly planted mines and booby-traps on a long stretch
of territory inside south-eastern Bhutan to prevent incursions by Indian
security forces from Assam. The areas along the Manas forests in Bhutan
bordering Assam’s Nalbari district are completely mined. Two villagers
died in a landmine explosion in July 1999.” Rakesh Chhetri,
“Bhutan’s geopolitics: Indian militants and security,”
Kathmandu Post, 27 August 1999. [13]
“Indian militants kill six Bhutanese nationals in landmine blast,”
Agence France-Presse (Guwahati, India), 31 July 2001; Wasbir Hussain “Six
Bhutanese nationals killed in land mine explosion near India-Bhutan
border,” Associated Press (Guwahati), 31 July 2001.