LM Report 2004

Mongolia

Key developments since 1999: Mongolia has voted in favor of every pro-Mine Ban Treaty UN General Assembly resolution since 1998. Mongolia has increasingly participated in Mine Ban Treaty meetings. In January 2002, the President of Mongolia expressed support for a mine ban and said that a process to assess accession to the Mine Ban Treaty had been initiated; it was still underway in 2004. Mongolian defense officials have acknowledged that Mongolia has a large operational stockpile of antipersonnel mines.

Mine Ban Policy

Mongolia has not acceded to the Mine Ban Treaty. Mongolian officials have cited a number of factors that inhibit Mongolia’s accession, including long borders, financial constraints regarding alternative weapons and stockpile destruction, and the fact that neither of its neighbors, Russia and China, have renounced landmines.^[1]

However, Mongolia has repeatedly expressed its commitment to the ultimate goal of a total ban of landmines. In January 2002, during a meeting with the new Canadian Ambassador, the President of Mongolia said that Mongolia would “support Canadian efforts and international joint societies to ban landmines.”^[2] Also in early 2002, a Ministry of Defense official stated that Mongolia “pursues a step-by-step approach towards the prohibition of APL use, stockpiling and their destruction and fully supports the global movement on banning landmines around the world.”^[3] In December 2003, a Ministry of Foreign Affairs official confirmed that Mongolia continues to fully share the aspiration to ban antipersonnel mines and welcomes the Mine Ban Treaty.^[4] Mongolia has voted in favor of every pro-Mine Ban Treaty UN General Assembly resolution since 1998, including Resolution 58/53 in December 2003.^[5]

On 27-28 June 2001, the government of Mongolia, with the support of the Canadian government and the Landmine Monitor research team in Mongolia, organized the conference on “Sharing our Future in a Mine-Free World.” The conference was the first event in Mongolia specifically addressing the issue of landmines. In January 2002, the President of Mongolia stated that a research process to assess accession to the Mine Ban Treaty had been initiated, led by the President’s Advisor on military issues.^[6] In January 2004, the government indicated the process is still underway, but no other information could be provided.^[7] On 10 July 2002, the Ministry of Foreign Affairs proposed to the Ministry of Defense that Mongolia first ratify Amended Protocol II of the Convention on Conventional Weapons (CCW), then follow with accession to the Mine Ban Treaty in 2003.

While Mongolia did not participate in the Ottawa Process or the treaty negotiations, it has become more involved in recent years. Mongolia participated as an observer in the Fifth Meeting of States Parties of the Mine Ban Treaty in Bangkok in September 2003, and the February and June 2004 Standing Committee meetings. Previously, Mongolia attended the Fourth Meeting of States Parties and the intersessional meetings in January 2002 and February 2003.

Mongolia is a State Party to the original Protocol II to the CCW, but has not ratified Amended Protocol II to the CCW. Mongolia attended as an observer the Fifth Annual Conference of States Parties to CCW Amended Protocol II on 26 November 2003. In a May 2004 letter addressed to UN Secretary-General Kofi Annan, Mongolia declared that ratification of Amended Protocol II “is under active consideration of the concerned Mongolian authorities.”^[8]

The issue of landmines and the position of the Mongolian government on the Mine Ban Treaty was discussed at a NATO workshop held in Ulaanbaatar in June 2004. (See below for more on the workshop). Officials from the Ministry of Foreign Affairs, Ministry of Defense, General Staff of the Mongolian Armed Forces as well as members of the Mongolian Parliament participated in this meeting.^[9]

In September 2003, during an official visit of a Canadian diplomatic delegation, the issue of Mongolia’s accession to the Mine Ban Treaty was raised in a number of meetings at the highest levels.^[10] Mongolian officials have agreed that Mongolia could adopt resolutions on non-transfer and/or non-production of antipersonnel mines.^[11] In October 2003, during a meeting with the Second Secretary of the Canadian Embassy in Beijing, Mongolia’s Head of the Foreign Relations Department in the Ministry of Defense, Natsgyn Nurzed, confirmed that the position of Mongolian Ministry of Defense on a ban has not changed.^[12]

Canada’s Ambassador for Mine Action, Ross Hynes, visited Mongolia in May 2004. He met the State Secretaries of Foreign Affairs and Defense, high-level military officials, and members of the National Security Council. The officials stressed that Mongolia is pursuing a phased approach to accession, though the Foreign Ministry appears to view the convention as a priority.^[13]

In September 2003, the Landmine Monitor researcher for Mongolia published a report with translated articles and research materials on landmine issues, including the situation of landmines in Northeast Asia, the military utility of antipersonnel mines, and an explanation of the Mine Ban Treaty.^[14] This is the first time comprehensive information related to the landmine issue has been available in the Mongolian language. The translation work was financially supported by the Canada Fund. The final report was distributed to officials at the Ministry of Defense and Ministry of Foreign Affairs, as well as Members of Parliament and officials working at the Presidential level. Radio and television programs reported on the publication and raised public awareness.

Production, Transfer, Stockpiling and Use

Mongolia states that it has not and does not produce antipersonnel mines.^[15] Mongolia is not known to have exported antipersonnel mines. In 2004, a Mongolian Ambassador indicated that Mongolia has not imported antipersonnel mines in the last 10 years,^[16] while a military source stated Mongolia has not imported mines since 1985.^[17] There is no specific domestic regulation of production, import, export, or transportation of antipersonnel mines.^[18]

Mongolian defense officials have acknowledged that Mongolia has a large operational stockpile of antipersonnel mines.^[19] The number of antipersonnel mines in stockpile is confidential. Mongolia has revealed that it has eleven types of antivehicle and antipersonnel mines, all purchased from the former Soviet Union between 1960 and 1985; 73.2 percent of the total are antipersonnel mines.^[20] The mines include models PMN, OZM-3, and POMZ.^[21]

Despite the large stockpile, and its reluctance to join the Mine Ban Treaty, Mongolia also insists that it has never used antipersonnel landmines.^[22]

Landmine/UXO Problem and Clearance

In 1998, a team from the U.S. Defense Department and their Mongolian counterparts from the Ministry of Defense concluded that Mongolia is not a mine-affected country, but other types of unexploded ordnance (UXO) are present.^[23]

According to one source, Mongolia has about 655,000 hectares of UXO-affected land. This includes 414,000 hectares of land allocated to 187 former Soviet military bases and training grounds between 1960 and 1992, 150,000 hectares of former battlefield areas from the war of 1939-1945, and 91,000 hectares of present and past military sites used by the Mongolian Armed Forces.^[24] The UXO have harmed shepherds and cattle.

By September 2004, no clearance activities had taken place. One official has said the delay is partly because the detailed data on former Soviet bases has not been handed over to Mongolian authorities and partly because the Mongolian government does not have sufficient funds to carry out such a task.^[25] No signs or fences demarcating contaminated areas have been placed to protect local residents and animals.

On 1–3 June 2004 the NATO Committee on the Challenges of Modern Society (CCMS) held a workshop on “Rehabilitation of former military sites” in Ulaanbaatar. The workshop concluded that a more detailed assessment of the sites was needed. It recommended that the government develop an action plan for clearance and rehabilitation of the military sites, and identify clearance priorities according to the agreed criteria which include environmental risks, humanitarian risks, and possible economic benefits.^[26]

In March 2003 a group of Mongolian military officials organized a demining field training with Belgian counterparts. The Ministries of Defense of France and Mongolia have been discussing future cooperation on matters related to antipersonnel mines.^[27]

Landmine/UXO Casualties and Survivor Assistance

In 2003, no human or animal mine/UXO casualties were reported.^[28] Incidents related to landmines and UXO around the country are to be reported to the police department of the relevant province, and it is then the responsibility of the police to report to the Ministry of Defense’s Engineering Department. But, the police department often fails to do so, and this precludes accurate data collection. The last known UXO casualty was in 2000 when a man was killed. In 1999, a man was injured and a boy killed in two separate UXO incidents.^[29]

On average, the Engineering Department receives three calls a year related to landmines or UXO. In 2003, it received one call. A UXO was found in scrap metal at a factory in Darkhan city and was disarmed by an engineers’ team.^[30]

Emergency and continuing medical care, physical rehabilitation, other types of social services and assistance to people injured by UXO is provided in accordance with legislation such as the “Mongolian Law on Social Welfare” and the “Law on Social Assistance for People with Disabilities.” These laws do not include specific provisions for people with disabilities caused by landmines or UXO.^[31]

Approximately fifty non-governmental and six state organizations work with, and provide services for, people with disabilities in Mongolia. Neither the State Statistical Office nor independent research units have any data on people disabled as the result of landmine or UXO incidents.^[32]

[1] See Landmine Monitor Report 2001, p. 559, and Landmine Monitor Report 2003, p. 649.
[2] Press and Information Department of the Presidency, Release #17, Ulaanbaatar, January 2002, p. 2.
[3] Meeting with Col. Y. Chiojamts, Director of Strategic Management and Planning Directorate, Ministry of Defense, Ulaanbaatar, 7 February 2002.
[4] Meeting with Galyn Nemuun, Attaché, Department of Multilateral Relations, Ministry of Foreign Affairs, Ulaanbaatar, 15 December 2003.
[5] Mongolia abstained from voting on the first UNGA resolution in support of the Mine Ban Treaty.
[6] Department of the Presidency, Press Release #17, Ulaanbaatar, January 2002, p. 2. For details see Landmine Monitor Report 2003, p. 649.
[7] Correspondence with Dalantai Haliun, Press Secretary to the President, Director, Press and Information Department, Government House, Toronto, Canada, 5 January 2004.
[8] Letter to Kofi Annan, UN Sec-Gen, from Amb. Baatar Choisuren, Permanent Representative to the UN in New York, 3 May 2004.
[9] Meeting with Col. Bavuugyn Erdenebayar, Officer, Strategic Management and Planning Directorate, Ministry of Defense, Ulaanbaatar, 20 February 2004. Correspondence from Rashmaagyn Gavaa, Member of Mongolian Parliament, Government House of Mongolia, Toronto, Canada, 25 February 2004.
[10] Senator Dan Hays, Speaker of the Canadian Senate, discussed Mongolia’s accession with the President of Mongolia. David Kilgour, Secretary of State for Asia and the Pacific, discussed it with Mongolia’s Prime Minister and Foreign Minister.
[11] Meeting with the Mongolian Ambassador to Canada, Ulaanbaatar, 10 September 2003.
[12] Meeting with Col. Bavuugyn Erdenebayar, Officer, Ministry of Defense, 20 February 2004.
[13] Email from Sumita Dixit, Program Coordinator–Asia, DFAIT Canada, 6 August 2004.
[14] “Yavgan tsereg eserguitseh mini tuhai (“About Landmines”), Sod Press, Ulaanbaatar, 2003.
[15] Interview with Sukh-Ochir Bold, Head of Consular Department, Ministry of Foreign Affairs, Ulaanbaatar, 7 February 2001; meeting with Col. Yadmaa Choijamts, Director of Strategic Management and Planning Directorate, Ministry of Defense, Ulaanbaatar, 7 February 2002; interview with Gen. Molomjamts, Head, Institute of Strategy and Planning, Ulaanbaatar, 10 February 2004; correspondence from Rashmaagyn Gavaa, Member of Mongolian Parliament, Toronto, Canada, 25 February 2004.
[16] Letter from Amb. Baatar Choisuren, Permanent Representative to the UN, 3 May 2004.
[17] Handout provided by Col. Lhagva Gantumur, Mongolia-Canada meeting, Ottawa, 17 May 2001.
[18] Interview with Sukh-Ochir Bold, Head of Consular Department, Ministry of Foreign Affairs, Ulaanbaatar, 7 February 2001; interview with Navaan-Yunden Ouyndar, Head of Department of Foreign Relations, Ministry of Environment, Ulaanbaatar, 6 February 2001; meeting with Colonel Yadmaa Choijamts, Director of Strategic Management and Planning Directorate, Ministry of Defense, Ulaanbaatar, 7 February 2002.
[19] Meeting with Col. Lhagva Gantumur, Head of Engineering Department, Ministry of Defense and General Staff of Armed Forces of Mongolia, Ulaanbaatar, 20 February 2004; meeting with Col. Yadmaa Choijamts, Director of Strategic Management and Planning Directorate, Ministry of Defense, Ulaanbaatar, 7 February 2002.
[20] Handout provided by Col. Lhagva Gantumur, 17 May 2001. The mines were described as two types: fougasse (blast) and fragmentation AP mines.
[21] Interview with Col. Lhagva Gantumur, Ministry of Defense, Ulaanbaatar, 26 January 2001; meeting with Col. Yadmaa Choijamts, Ministry of Defense, 7 February 2002.
[22] Letter from Amb. Baatar Choisuren, Permanent Representative to the UN, 3 May 2004.
[23] NATO/CCMS Workshop “Rehabilitation of former military sites” Ulaan Baatar, 13 June 2004.
[24] Ibid.
[25] Meeting with Col. Yadmaa Choijamts, Ministry of Defense, 7 February 2002.
[26] See “News,” Ministry of Foreign Affairs of Mongolia Website.
[27] Meeting with Col. Bavuugyn Erdenebayar, Officer, Strategic Management and Planning Directorate, Ministry of Defense, Ulaanbaatar, 20 February 2004. It is not clear if the discussions are related to demining or stockpile destruction or both.
[28] Interview with Col. Lhagva Gantumur, Ministry of Defense, 20 February 2004.
[29] Interview with Col. Gantumur, Ministry of Defense, Ulaanbaatar, 26 January 2001; interview with Col. Y. Choijamts, Ministry of Defense, 7 February 2002.
[30] Interview with Col. Lhagva Gantumur, Ministry of Defense, 20 February 2004.
[31] Ibid, 7 January 2002; 1998 Mongolian Law on Social Welfare; 1998 Amended Mongolian Law on Social Assistance for People with Disabilities.
[32] See Landmine Monitor Report 2002, p. 715.