Key developments since May 2004: HALO Trust cleared and area-reduced
almost 2.3 square kilometers of land in 2004, destroying 815 antipersonnel
mines, 153 antivehicle mines and more than 1,500 UXO. Abkhazia received about
US$2 million for mine action in 2004, including $1.5 million from the US; in
2005, US demining assistance to Abkhazia increased to $3 million.
Mine Ban Policy
After the disintegration of the Soviet Union, the 1992-1993 conflict between
Abkhazia and the government of Georgia was characterized by significant use of
mines by both sides. A cease-fire agreement was reached in May 1994, but
skirmishes have continued. Abkhazia is not an internationally recognized state,
so it cannot become party to the Mine Ban Treaty.
During a Landmine Monitor research and advocacy mission to Abkhazia in May
2005, officials expressed sympathy with humanitarian concerns, but bluntly
stated that Abkhazia cannot ban antipersonnel mines at this time. The Foreign
Minister told Landmine Monitor, “Abkhazia suffered great losses because of
landmines, and Abkhazia is interested in solving the landmine crisis around the
world. Our problem is that we live under constant pressure of another war.
Abkhazia cannot refuse to use landmines, because it is one of the means of
defense of its forces. When we have international guarantees that there will be
no war, then we will make significant steps to join the Ottawa
Convention.”[1 ]
Military officials echoed similar sentiments: “Landmines in Abkhazia
are used for the purpose of defense of her military personnel, and at this
moment we cannot refuse to use this
weapon.”[2 ]Another officer
stated, “Abkhazia can hardly ban landmines at this
moment.”[3]
Production, Transfer, Stockpiling and Use
Abkhazia is not believed to have ever produced or exported antipersonnel
mines. Abkhazian forces maintain a stockpile of antipersonnel mines, though its
size and composition is unknown. Russian engineering units serving with
Commonwealth of Independent States (CIS) peacekeeping forces may also stockpile
antipersonnel mines.
In 2004 and the first half of 2005, there was no new use of antipersonnel
mines reported on the territory of
Abkhazia.[4 ]According to military
officials, “There are special units in Abkhazia that are ready to install
landmine fields at any moment providing it is necessary for the defense of
national security. However, the military force of the Republic of Abkhazia did
not use landmines for the past two
years.”[5 ]In the past, armed
groups from Georgia, allegedly linked to the Georgian government, have
infiltrated into Abkhazia and laid antipersonnel mines, but there have been no
reports of such mine-laying since 2003.[6 ]
Landmine and UXO Problem
Contamination of Abkhazia with mines and unexploded ordnance (UXO) resulted
from the armed conflict of 1992-1993 between the breakaway republic and Georgia
proper. The war was “characterized by front lines moving along the Black
Sea coast from the Gumista River, north of the city of Sukhum, to the Ingur
River further south....Mines were laid in flat and fertile valleys to augment
the natural obstacles of the
rivers.”[7]
According to Sergey Shamba, Minister for Foreign Affairs, “immediately
after the war Abkhazia used landmines along banks of Ingur river and Gal canal
for the protection of its armed forces. Then the HALO Trust began demining
operation and as far as I know Gal region is completely cleared of
landmines.”[8 ]In an interview
in May 2005, the Deputy Minister of Defense claimed that there were no mines
left on the border with
Georgia.[9]
Minister Shamba also claimed that there is mine contamination on the upper
part of Kodor Valley.[10 ]HALO has
noted that due to insecurity and lawlessness in the Upper Kodor Valley it is not
possible to conduct survey or mine clearance operations there. According to
HALO, “all the mines laid in Abkhazia were of Soviet military origin and
include anti-personnel (PMN, PMN2), anti-group (MON50, 100, 200, OZM72) and
anti-vehicle (TM62, TM57) mines. HALO also found a considerable number of
improvised explosive devices (IED) packed into oxygen cylinders or fuel
drums.”[11 ]
HALO described Abkhazia as resembling the worst-affected areas of Bosnia,
yet receiving a fraction of the international aid to resolve its mine/UXO
problem.[12]
Mine Action Program
There is no internationally recognized mine action authority in Abkhazia.
Mine action data collection, planning and operational coordination is provided
by the Abkhaz Mine Action Centre (AMAC), established by HALO in 1999. HALO
manages AMAC, with international funding.
AMAC records all survey, clearance and post-clearance data. HALO reports
that relevant data including maps are distributed to and analyzed in conjunction
with development agencies and local ministries. As there is little pressure on
land in Abkhazia, task selection and prioritization are largely left to the HALO
management team, which liaises with local community leaders and the Abkhaz
authorities.[13]
HALO conducted a comprehensive survey in 1999-2000 that identified nearly 18
square kilometers of land as being mined or suspected of being mined. It has
since cleared and area-reduced more than eight square kilometers. Manual
deminers use the one-man-one-lane technique, while mechanical units are used for
area reduction.[14 ]HALO deploys
integrated manual and mechanical mine clearance teams, mine risk education
teams, and survey and minefield marking teams, based in Ochamchire and Gal. It
has also trained and equipped a mobile explosive ordnance disposal (EOD) team to
deal with all items of ordnance used in the conflict, including large
bombs.[15 ]During 2004, HALO
Abkhazia employed 450 demining staff (increased from 380 in
2003).[16]
HALO’s mandate, under its accelerated demining program, is to declare
Abkhazia “mines and UXO impact free, where security permits” by
mid-2007. All known minefields in Abkhazia have been prioritized for clearance,
with minefields closest to human habitation determined as the first
priorities.[17]
The accelerated program relies on additional mechanical clearance assets
being deployed in support of existing manual mine clearance assets. From May to
October each year, it doubles the output of manual and mechanical clearance by
organizing two shifts of manpower to use the machines and detectors available,
thereby achieving clearance operations from 7am to
7pm.[18 ]
Mine and UXO Clearance
During 2004, HALO manually demined 1,166,861 square meters of land and
mechanically reduced 1,105,791 square meters of suspect area; a total of 708
antipersonnel mines, 115 antivehicle mines and 869 UXO were found and
destroyed.[19 ]HALO also deployed
an EOD team to systematically visit villages across the region in search of UXO.
In 2004 the EOD team found and destroyed 704 UXO (including five aircraft bombs
close to Sukhum city), 107 antipersonnel mines and 38 antivehicle
mines.[20]
Clearance operations in the upper part of Gal were completed in March 2005
with the exception of one task. Subsequently, HALO held a meeting at which NGOs
working in Gal region, UN military observers and heads of village
administrations discussed landmine issues. No new information on landmines was
reported by any of the people or organizations. However, monitoring of the mine
situation in the region will
continue.[21 ]HALO hoped to
complete its work in Gal and declare the region mine impact free in
mid-2005.[22]
The Abkhaz authorities believe that HALO could be more effective if Georgia
provided maps of the minefields. This question was raised during negotiations
between Abkhaz and Georgian authorities, held in Gal on 12 May 2005 at the
request of HALO; Georgian authorities promised to address the
issue.[23 ]
Initially, Abkhaz authorities were reluctant to allow HALO to operate in
areas they considered strategically important, including the Ingur river banks
in upper Gal and along the Gal canal. As security improved, HALO gained
permission to expand operations to these
areas.[24 ]After HALO first gained
agreement to carry out mine/UXO clearance in 1997, its operations were initially
concentrated around the Abkhazian capital Sukhum and along the de facto
border with Georgia in Gal
region.[25 ]
Commonwealth of Independent States peacekeepers have also conducted mine/UXO
clearance in their area of responsibility in Gal region. In upper Gal, HALO
believes that CIS peacekeeping troops have removed a considerable amount of
explosive ordnance, possibly around 5,000 mines and UXO, in the “security
and limited weapon zones” only.[26 ]By July 2005, Russian engineers had also carried out survey and demining
of the railway between Ochamchire and Zugdidi (in Georgia). At the trilateral
Abkhazian-Georgian-Russian meeting in Gal region on 2 July 2005, the parties
decided to carry out a joint mine survey of the Psou-Ingur area, including the
bridge across the Ingur River, from 15 July to 1 October 2005. Three teams
located in Gal, Sukhum and Gagry have been assigned to do the survey, which is
intended to lead to a railway connection between Russia and Georgia through
Abkhazian territory. This route was expected to earn Abkhazia between $500,000
and $800,000 per month.[27 ]
HALO deminers suffered no casualties in 2004; an Abkhaz Army deminer was
injured in a mine accident in April
2004.[28 ]On 13 August 2005, a HALO
deminer initiated a PMN2 antipersonnel mine while working on Habiuk
Mountain north of Sukhum. The deminer suffered the immediate traumatic
amputation of part of his foot. Subsequent investigation determined that the
deminer had contravened standard operating procedures while excavating
a signal in the minefield; the deminer will receive compensation for his
injuries.[29]
HALO conducts mine risk education (MRE) in Abkhazia, as part of an
integrated mine action program of mine clearance, minefield marking and MRE.
HALO reports that this has resulted in a reduction in casualties, with only six
recorded casualties in
2004.[31 ]
Following a survey of mine casualties in 2002, adult males are considered to
be the most at-risk group and are the focus of most MRE programming. However,
HALO continues with a school-based program. HALO maintains a mine casualty
database, which is used to analyze casualty trends and adapt MRE
programming.
Television is considered to be of the most effective ways of reaching large
target audiences in Abkhazia. HALO has commissioned a number of short
documentaries and advertisements aimed at the adult population, and puppet shows
and cartoons for children. MRE posters and booklets are printed in Russian,
Abkhazian and Georgian. Lectures and school-based activities are given in all
three languages.
MRE teams have visited every school in the mine-affected areas and
distributed exercise books to students. Since 1999 and continuing during 2004,
HALO has trained 645 teachers to give MRE lectures to children in mine-affected
areas. Teachers were provided with an MRE pack, which included a
teacher’s manual, posters, pens and exercise books.
HALO MRE teams also provide support to other NGOs working in Abkhazia, and
to the UN Observation Mission in Georgia (UNOMIG). They provide new staff with
MRE training.
Funding and Assistance
HALO’s operations in Abkhazia are funded by the US Department of
State, UK Department for International Development, the Netherlands and Tokyo
Broadcasting Systems.[32 ]Donor
reports indicate that Abkhazia received approximately $2 million in mine action
assistance in 2004:
Netherlands: €123,543 ($153,663) for mine
clearance;[33]
Tokyo Broadcasting Systems: $200,000 through the Association for Aid and
Relief, Japan;[34]
UK: £148,405 ($272,026) for integrated
demining;[35]
In fiscal year 2005, the US provided $3 million for mine action in
Abkhazia.[37 ]The Department of
State reported that its humanitarian demining program will continue to address
the threat of landmines and UXO from the civil conflict in and around Abkhazia
in US fiscal year 2006.[38 ]
Landmine Casualties
In 2004, six people were injured in reported landmine/UXO incidents,
including two children and an Abkhaz Army
deminer.[39 ]Five new landmine
casualties were reported in 2003.[40 ]
Casualties continue to be reported in 2005, with nine new mine/UXO
casualties reported to August, including three children, five military personnel
and one HALO deminer.
HALO has recorded 662 mine/UXO casualties between 1992 and August 2005; 147
people were killed and 515 injured.
Survivor Assistance and Disability Policy and Practice
Health facilities in Abkhazia are in poor condition due to a lack of
resources. In 2004, the International Committee of the Red Cross (ICRC)
provided equipment, supplies and medicines to five hospitals in Abkhazia, mainly
for the treatment of weapon-related injuries or emergency surgery. The
assistance was terminated or cut back when the program concluded at the end of
2004.[41 ]Médecins sans
Frontières provides emergency medical care and surgical equipment in
support of health facilities in Abkhazia, including a clinic in
Sukhum.[42 ]Landmine and other war
related trauma is primarily treated in Agudzera military
hospital.[43 ]Treatment of the
population of Kodor Valley is also provided there.
The two main Abkhazian organizations working with persons with disabilities,
including landmine survivors, are the Gagra Orthopedic Center and Association of
Invalid Support (AIS). The Gagra Rehabilitation Center also provides limited
assistance.[44 ]
The Ministry of Health-run Gagra Orthopedic Center (GOC) provides physical
rehabilitation services and orthopedic devices, free of charge, with the support
of ICRC. GOC also provides an outreach program to the Gal area for those unable
to access the center. In 2004, GOC produced 81 prostheses (41 for mine
survivors) and 47 orthoses, and distributed 11 wheelchairs and 520 crutches. In
2004, ICRC also facilitated the training of two physiotherapists from the Gagra
center.[45 ]As of May 2005, GOC has
registered 555 amputees, including 261 landmine survivors. The quality of
prosthetics is reportedly limited by the available
technology.[46 ]Many amputees,
particularly those with above-knee amputations, reportedly seek orthopedic
assistance outside Abkhazia in Armenia and
Russia.[47]
The Sukhum-based Association of Invalid Support (AIS) provides physical
rehabilitation, psychosocial support and computer classes for mine survivors and
other persons with disabilities. AIS’s physical rehabilitation activities
are implemented in cooperation with the Center for Humanitarian Programs and
Agudzera Republican Hospital. AIS also operates an internet
cafe.[48 ]
The Verask Charitable Foundation for the Disabled and Amputees, supported by
Adopt-A-Minefield, provides mobility devices to mine survivors and other persons
with disabilities in Abkhazia. In 2004, Verask distributed 33 wheelchairs and
240 crutches, and provided financial assistance to 13 disabled children in Gal
region.[49]
The Harmony Center for Psychological Help, with the support of UNICEF and
HALO Trust, implements a summer rehabilitation program for child mine survivors
and their families. In 2004, 15 children participated in the program, including
nine amputees and six with other injuries. UNICEF will continue supporting the
program in 2005.[50]
Other Abkhazian NGOs assisting persons with disabilities include the Forum
for the Organizations of Disabled, Association of Parents of Disabled Children,
Gagra Amputees Football Club, Association of the Disabled of Abkhazia, Gudauta
Association of Disabled, Society of the Deaf and Society of the
Blind.[51 ]
A survivor from Abkhazia, Vitaly Gabniya, participated in the Raising the
Voices training in Geneva in February 2004 and the First Review Conference in
Nairobi in November-December 2004. He also took part in the conference,
Approaches to Recovery and Reintegration of Survivors of War-Related Injuries,
in Washington in May 2005.
The Ministry of Health and Social Security is responsible for assistance to
disabled persons in Abkhazia. A new law to protect the rights of persons with
disabilities has been drafted with input from disability organizations and
persons with disabilities.[52 ]
The Coordination Council on the Issues of Disabled in Abkhazia, a coalition
of government and NGOs, was established to address the needs of persons with
disabilities, including landmine survivors; however, the council is reportedly
inactive due to the presidential elections and change in government
structures.[53 ]
[1 ]Interview with Sergey Shamba,
Minister for Foreign Affairs, Sukhum, 23 May 2005.
[2 ]Interview with Lt. Gen. Anatoly
Zaitsev, Deputy Minister of Defense and Chief of General Staff, and Col. Garry
Kupalba, Deputy Minister of Defense, Sukhum, 24 May 2005.
[3]Telephone interview with Col.
Khuta Kurt-Ogly, Commander of Engineering Forces, Ministry of Defense, 4 May
2005.
[4 ]Interview with Lt. Gen. Anatoly
Zaitsev and Col. Garry Kupalba, Ministry of Defense, Sukhum, 24 May 2005.
[5 ]Interview with Lt. Gen. Anatoly
Zaitsev and Col. Garry Kupalba, Ministry of Defense, Sukhum, 24 May 2005.
Abkhazia last acknowledged using antipersonnel mines in mid-2002. See
Landmine Monitor Report 2004, p. 1180.
[6 ]See Landmine Monitor Report
2004, p. 1180.
[7]htpp//www.halotrust.org/abkhazia.html[8 ]Interview with Sergey Shamba,
Minister for Foreign Affairs, Sukhum, 23 May 2005.
[9]Interview with Lt. Gen.
Anatoly Zaitsev, Ministry of Defense, Sukhum, 24 May 2005.
[10 ]Interview with Sergey
Shamba, Minister for Foreign Affairs, Sukhum, 23 May 2005; information repeated
in an interview with Col. Garry Kupalba, Ministry of Defense, Sukhum, 24 May
2005.
[11 ]“Report on HALO Trust
program in Abkhazia,” June 2005, provided by David McMahon, Program
Manager, HALO Trust Abkhazia.
[12]See Landmine Monitor
Report 2004, p. 1181.
[13]“Report on HALO Trust
program in Abkhazia,” June 2005, provided by David McMahon, HALO Abkhazia,
and email of 1 August 2005.
[14 ]“Report on HALO Trust
program in Abkhazia,” June 2005, provided by David McMahon, HALO Abkhazia,
and emails 1 and 3 August 2005.
[15 ]http//www.halotrust.org/abkhazia.html.html.
[16]“Report on HALO Trust
program in Abkhazia,” June 2005.
[17]“Report on HALO Trust
program in Abkhazia,” June 2005 and emails from David McMahon, HALO
Abkhazia, 1 and 3 August 2005.
[18 ]“Report on HALO Trust
program in Abkhazia,” June 2005, and email from David McMahon, HALO
Abkhazia, 1 August 2005.
[19 ]“Report on HALO Trust
program in Abkhazia,” June 2005.
[20]“Report on HALO Trust
program in Abkhazia,” June 2005 and email from David McMahon, HALO
Abkhazia, 1 August 2005.
[21 ]Interview with David
McMahon, HALO Abkhazia, Gal, 29 April 2005.
[22]“Report on HALO Trust
program in Abkhazia,” June 2005.
[23 ]Interview with Sergey
Shamba, Minister for Foreign Affairs, Sukhum, 23 May 2005.
[24 ]“Report on HALO Trust
program in Abkhazia,” June 2005.
[25 ]“Report on HALO Trust
program in Abkhazia,” June 2005. See also Landmine Monitor Report
2004, pp. 1181-1182.
[26 ]Interview with David
McMahon, HALO Abkhazia, Gal, 29 April 2005.
[27 ]“Kavkazskiy
uzel,” Information agency, 5 July 2005, www.peacekeeper.ru.
[28 ]Email from David McMahon,
HALO Abkhazia, 18 August 2005.
[29]Email from David McMahon,
HALO Abkhazia, 18 August 2005.
[30]Interview with David
McMahon, HALO Abkhazia, Gal, 29 April 2005.
[31 ]“Report on HALO Trust
program in Abkhazia,” June 2005, and email from David McMahon, HALO
Abkhazia, 1 August 2005.
[32 ]“Report on HALO Trust
program in Abkhazia,” June 2005.
[33]Email from Freek Keppels,
Arms Control and Arms Export Policy Division, Ministry of Foreign Affairs, 4
August 2005.
[34]Email from Miori Oka,
Association for Aid and Relief, Japan, 24 August 2005. The contribution was in
US$.
[35]Email from Andrew Willson,
Conflict and Humanitarian Affairs Department, Department for International
Development, 1 July 2005. Average exchange rate for 2004: £1 = US$1.833,
US Federal Reserve, “List of Exchange Rates (Annual),” 3 January
2005.
[36]USG Historical Chart
containing data for FY 2004, email from Angela L. Jeffries, Financial Management
Specialist, Bureau of Political-Military Affairs, US Department of State, 20
July 2005. US funds to mine action in Abkhazia are formally ascribed to
Georgia.
[37 ]USG Historical Chart
containing data for FY 2004, email from Angela L. Jeffries, Financial Management
Specialist, Bureau of Political-Military Affairs, US Department of State, 20
July 2005.
[38 ]US Department of State,
“Congressional Budget Justification for Foreign Operations, Fiscal Year
2006; Europe and Eurasia”, www.state.gov/documents/organization/42251.pdf,
accessed 23 September 2005.
[39 ]Unless otherwise stated, all
information in this section from: email to Landmine Monitor (HI) from David
McMahon, HALO Abkhazia, 17 August 2005; email to Landmine Monitor (NPA) from
David McMahon, HALO Abkhazia, 18 August 2005.
[40 ]“Report on HALO Trust
program in Abkhazia,” June 2005.
[41 ]ICRC, “Annual Report
2004,” Geneva, June 2005, p. 207; for more information, see also
Landmine Monitor Report 2004, p. 1184, and the Georgia report in this
edition of Landmine Monitor.
[42 ]Report of the UN
Secretary-General on the situation in Abkhazia, Georgia, S/2004/315, 20 April
2004, p. 7; interview with MSF personnel, Sukhum, 11 July 2003.
[43 ]Interview with Dr. Guram
Shoua, Agudzera Military Hospital, 27 September 2005.
[44 ]See Landmine Monitor
Report 2002, p. 800.
[45 ]ICRC, “Annual Report
2004,” Geneva, June 2005, p. 207; ICRC Physical Rehabilitation Program,
“Annual Report 2004,” Geneva, July 2005, p. 34-35; email to Landmine
Monitor (Georgia) from the Georgian Foundation for Prosthetic Orthopedic
Rehabilitation, 21 April 2005.
[46 ]Interview with Zina
Donyelian, Head of Gagra Orthopedic Workshop, Gagra, 24 May 2005; interview with
Stephan Sakalyan, Head of the ICRC mission to Abkhazia, Sukhum, 27 May 2005.
[47]Interview with Sergey
Shamba, Minister of Foreign Affairs, Sukhum, 23 May 2005.
[48 ]For more information, see
Landmine Monitor Report 2004, p. 1184; see also Standing Tall Australia
and Mines Action Canada, “101 Great Ideas for the Socio-Economic
Reintegration of Mine Survivors,” June 2005, p. 4.
[49]Telephone interview with
Vitaly Gabniya, Assistant Administrator, Verask, Sukhum, 6 June 2005.
[50]Interview with Viktoria
Ardzinba, Director, Harmony, Sukhum, 20 May 2005; see also Landmine Monitor
Report 2004, p. 1184.
[51 ]Interview with Aslan
Kutsnia, Advocacy Director, AIS, Sukhum, 15 June 2005.
[52 ]Interview with Deputy
Minister of Health and Social Welfare, Sukhum, 31 March 2004.
[53 ]Interview with Aslan
Kutsnia, AIS, Sukhum, 15 June 2005.