Key developments since May 2004: Djibouti again appears to have
declared that it has met its Article 5 obligation to clear all mined areas,
although there is evidence that mined areas still exist.
France conducted a military mission in March-April 2005 to prepare for
clearance of its mine-affected La Doudah military base.
Mine Ban Policy
The Republic of Djibouti signed the Mine Ban Treaty on 3 December 1997,
ratified on 18 May 1998 and became a State Party on 1 March 1999. A government
official stated in March 2004 that Djibouti had drafted national implementation
legislation that likely would be adopted by the time of the First Review
Conference of the Mine Ban Treaty in November 2004. The legislation has
apparently still not been enacted.[1 ]Djibouti has cited various existing laws as relevant to implementation of
the Mine Ban Treaty.[2 ]
On 25 January 2005, Djibouti submitted its third Article 7 transparency
report, covering calendar year
2004.[3 ]
Djibouti participated in the First Review Conference in Nairobi in
November-December 2004. Its participation was notable in that it had not
attended any of the five annual Meetings of States Parties from 1999-2003.
Mahmoud Ali Youssouf, Minister of State for International Cooperation at the
time, led the country’s delegation to the conference and made a statement
in the high level segment.
Djibouti attended the treaty’s intersessional Standing Committee
meetings in Geneva in June 2004, and the International Conference of Children
against Landmines held in Shin Asahi, Japan, from 19 to 25 August 2004. It also
attended the June 2005 intersessional meetings in Geneva, but did not make a
statement. Djibouti has not engaged in the extensive discussions that States
Parties have had on matters of interpretation and implementation related to
Articles 1, 2 and 3. Thus, Djibouti has not made known its views on issues
related to joint military operations with non-States Parties, foreign
stockpiling and transit of antipersonnel mines, antivehicle mines with sensitive
fuzes or antihandling devices, and the permissible number of mines retained for
training.
On 3 November 2004, Djibouti attended the inaugural meeting in New York of
the Forum of Mine-Affected Countries (FOMAC), a group of high level
representatives from mine-affected countries. FOMAC was formed to
encourage cooperation between mine-affected
countries.[4]
Production, Transfer, Use, Stockpiling and Destruction
Djibouti has reported that it has not produced antipersonnel
mines.[5 ]It is not known to have
ever exported mines. On 2 March 2003, one day after its treaty-mandated
deadline, the country destroyed its stockpile of 1,118 antipersonnel
mines.[6 ]Djibouti is retaining 2,996
antipersonnel mines for training
purposes.[7 ]The number has not
changed since Djibouti first declared it in January 2003, indicating no mines
are being consumed during training activities. Djibouti has not yet reported in
any detail on the intended purposes and actual uses of its retained
mines—a step agreed to by States Parties in the Nairobi Action Plan that
emerged from the First Review Conference.
The French military based in Djibouti destroyed its own stockpile of 2,444
antipersonnel mines in November
1999.[8]
During the 1991-1994 civil war between the government and the Front for the
Restoration of Unity and Democracy, both sides used landmines around military
positions and on access roads.[9 ]There is no evidence that Djibouti's army used mines after the country
signed the Mine Ban Treaty.
Meeting the Article 5 Obligation - Djibouti
On 29 January 2004, Djibouti declared itself “mine-safe” after
more than 40,000 square meters of land had been
cleared.[10 ]The US Department of
State, which largely funded Djibouti’s clearance program, also issued a
press statement in January 2004 celebrating Djibouti’s “landmine
impact-free” status.[11 ]In
its February 2004 Article 7 report, Djibouti declared that there are no mined
areas and no suspected mined areas in the
country.[12 ]It stated that its
program for destruction of antipersonnel mines in mined areas was completed in
2003.[13 ]In June 2004, Djibouti
told States Parties during the intersessional meetings in Geneva that as of 29
January 2004, it is “‘pays sans mines’ ou ‘mine
safe.’”[14 ]Thus, it
would appear that Djibouti officially declared that it had met its Mine Ban
Treaty Article 5 obligation to “destroy or ensure the destruction of all
anti-personnel mines in mined areas under its jurisdiction or
control.”
Djibouti’s January 2005 Article 7 report again declares that there are
no mined areas and no suspected mined areas in the country, and repeats that the
clearance program was completed in
2003.[15 ]However, it states that
the areas in some old firing ranges were discovered to be contaminated, and a
variety of unexploded ordnance was subsequently
destroyed.[16 ]
Although Djibouti appears to have declared that it met its Article 5
obligation, there is evidence that mined areas and suspected mined areas still
exist in the country. In May 2005, the US Department of State issued a travel
warning that stated, “While Djibouti has been declared a
‘mine-safe’ country, this indicates landmines have been identified
and marked, not that they have been removed. Landmines are known to be present
in the northern districts of Tadjoura and Obock. In addition, there are reports
that there may be mines in the Ali Sabieh district in the
south.”[17 ]A State
Department official noted in July 2005 that the government of Djibouti has all
of the data on where clearance took place, and on those areas that have been
fenced and marked
off.[18 ]Similarly, in February
2005, the State Department noted that “a majority of all mines laid in the
1990s in Tadjoura and Obock districts” have been cleared. It also stated,
“Areas that have little impact on civilian safety, agriculture, or
infrastructure do not require clearance before a country can be declared
‘mine
safe.’”[19]
In February 2004, Djibouti’s Minister of Foreign Affairs reportedly
acknowledged that Djibouti has to “continue its efforts to become
‘mine-free’ by 1 March
2009.”[20 ]
Djibouti’s treaty-mandated deadline to destroy all mines in mined areas
under its jurisdiction or control is 1 March 2009.
Meeting the Article 5 Obligation - France
The French Army has maintained an ammunition depot at La Doudah, which is
protected by antipersonnel mines, a few kilometers from the town center. Heavy
rainfall and floods in 1989 resulted in the movement of some mines beyond the
barbed wire fence that enclosed the
minefields.[21 ]In October 2003, a
French preparatory mission determined that the area was contaminated by some
700 mines and recommended that a mechanical sifter should be used to clear the
area.[22]
From 28 March to 4 April 2005, a French military mission visited La Doudah in
order to prepare a provisional timetable for clearance of the depot’s
minefields. It was decided that mine clearance would start in October 2006.
Climatic conditions (heat and the Khamsin wind) prevent clearance operations
being carried out from June to September each
year.[23 ]
The French Army will carry out the clearance operation, under the
responsibility of the commander of French forces in Djibouti. Machines will be
used, starting with mechanical ground preparation to optimize operation of the
sifter used afterwards. If necessary, clearance will be completed manually.
France expected that, in the absence of major unforeseen technical problems, the
clearance operation would be completed by mid-2007. After clearance, the area
will remain under the jurisdiction and control of
France.[24]
France’s treaty deadline for destruction of all antipersonnel mines in
mined areas under its jurisdiction or control is 1 March 2009.
Landmines Casualties and Survivor Assistance
On 7 September 2004, three girls aged between nine and 12 years old were
reportedly injured in a mine incident near a military garrison in the district
of Dikhil, near Galafi, while tending their
animals.[25 ]However, the
Djiboutian authorities have refuted this information and do not report incidents
since Djibouti was declared “mine safe” in January
2004.[26 ]No mine incidents were
reported in the first six months of 2005.
The total number of landmine casualties in Djibouti is not known. Landmine
Monitor identified 81 mine casualties between 1999 and 2001, including 23 people
killed and 51 injured, and the status of seven unknown. According to military
sources, between 1997 and 2000, 31 people were killed and 90 injured in mine
incidents; the majority of casualties were military
personnel.[27]
On 29 January 2004, when Djibouti declared itself “mine-safe,”
officials stressed the need to assist mine
survivors.[28]
Public health services in Djibouti have remained heavily impaired since the
end of the civil conflict. The only hospital with the capacity to treat trauma
injuries, Peltier Hospital, is in the capital. Regional health centers are only
capable of providing first
aid.[29]
The International Committee of the Red Cross runs a small program that funds
the travel and costs of amputees to the Prosthetic/Orthotic Center in Addis
Ababa, Ethiopia, every two years for the replacement of their prostheses. In
2004, 24 survivors benefited from the
program.[30]
Other organizations assisting disabled ex-combatants include Assistance to
the Handicapped; vocational training for disabled war veterans, including mine
survivors, is also available in carpentry and electrical
trades.[31]
[1 ]“Report and
Recommendations,” Workshop on Landmines and the Convention on the
Prohibition of Anti-Personnel Mines in East Africa, the Great Lakes and the Horn
of Africa Regions, Nairobi, Kenya, 2-4 March 2004.
[2 ]Four laws were cited: Law 62-61
(2 June 1962), Decree 817 (8 June 1962), Decree 64-406 (5 May 1964) and Decree
669 (20 July 1976). See Article 7 Reports, Form A, 16 January 2003 and 25
January 2005.
[3 ]Previous reports were submitted
on 16 January 2003 (originally due 27 August 1999), covering the period up to 1
October 2002, and on 6 February 2004, for calendar year 2003.
[4]United Nations,
“Countries stand united in the battle against landmines,” 4 November
2004, www.un.int/ Angola/press_release_landmines.
[5 ]Article 7 Report, Form E, 16
January 2003.
[6 ]Article 7 Report, Form G,
Tableau Explicatif, 6 February 2004; Article 7 Report, Form G, 16 January
2003.
[7 ]Mines retained include: 650
M12; 307 M412; 621 PPM2; 665 T72; 521 MB; 16 DV; 30 M961; 10 AV; 128 PPMISR; 12
MLE421; 18 M59; and 18 of unknown type and origin. Article 7 Reports, Form D,
16 January 2003 and 25 January 2005.
[8]Ministry of Defense, “La
France détruit ses dernières mines antipersonnel,” press
file, 20 December 1999.
[9 ]See Landmine Monitor
Report 1999, pp. 33-34.
[10 ]Statement of Brig. Gen.
Zakaria Cheick Ibrahim, Chef d'Etat-Major, Ministry of Defense, at the occasion
marking the end of the mine clearance program of the Djibouti Mine Action Center
(DMAC) and the declaration of Djibouti as mine safe, 29 January 2004. This
statement is attached to the February 2004 Article 7 report. The statement
concludes, “Et maintenant, je declare officiellement la Republique de
Djibouti ‘Djibouti sans mines’ ou ‘Mine
safe.’”
[11 ]US Department of State Press
Release, “Djibouti: First Horn of Africa Country to Become Free from
Impact of Landmines,” Washington DC, 29 January 2004. A State Department
official subsequently told Landmine Monitor that the statement inadvertently
understated Djibouti’s status, which he said should have been described as
the “first mine-affected country on the entire African continent to
achieve this success.” Email to Mark Hiznay, Human Rights Watch, from John
Stevens, Office of Weapons Removal and Abatement, Bureau of Political-Military
Affairs, US Department of State, 29 June 2005.
[12 ]Article 7 Report, Form C, 6
February 2004. In its January 2003 report, it indicated the presence of
suspected mined areas. Article 7 Report, Form C, 16 January 2003.
[13 ]Article 7 Report, Form F, 6
February 2004. “Programme integralement execute en 2003.” For
details of Djibouti clearance operations in previous years, see Landmine
Monitor Report 2004, pp. 396-398.
[14 ]Intervention of Djibril
Djama Elabé, Technical Advisor, Ministry of Foreign Affairs and
International Cooperation, Standing Committee on Mine Clearance, Mine Risk
Education and Mine Action Technologies, Geneva, 22 June 2004.
[15 ]Article 7 Report, Forms C
and F, 26 January 2005.
[16 ]Article 7 Report, Forms F
and G, 26 January 2005. The affected areas were in Balbala and Obock.
[17 ]“State Department
Issues Consular Information Sheet on Djibouti,” US Fed News
(Washington DC), 2 May 2005.
[18 ]Email to Mark Hiznay, HRW,
from John Stevens, US Department of State, 11 July 2005.
[19]US Department of State,
“Country Reports on Human Rights Practices-2004,” Washington DC, 28
February 2005.
[20 ]Statement by Ali Abdi Farah,
Minister of Foreign Affairs and International Cooperation, Workshop on the
Ottawa Convention and Mine Action in the Republic of Djibouti, Djibouti, 4
February 2004.
[21 ]See Landmine Monitor
Report 2004, pp. 396-397.
[22]CNEMA, “Rapport
2003,” pp. 22-23. CNEMA―Commission Nationale pour
l’Elimination des Mines Anti-personnels―was created in 1998 by
France’s law implementing the Mine Ban Treaty.
[23 ]Paper (untitled) given by
Capitaine de frégate, Benoît Duchenet, during a CNEMA meeting on 24
June 2005; France Article 7 Report, Form C, 7 July 2005.
[24]Paper (untitled) given by
Capitaine de frégate, Benoît Duchenet, during a CNEMA meeting, 24
June 2005; email from Capitaine de frégate, Benoît Duchenet, 1
September 2005.
[25 ]“Elles terrorisent le
Sud” (“They still terrify the South”),
Réalité (ARD newspaper), No. 12, 10 November 2004, www.ard-djibouti.org/112/sommaire.html,
accessed 30 August 2005. ARD is the Alliance Républicaine pour le
Développement.
[26 ]Interview with Djibril Djama
Elabé, Technical Advisor, Ministry of Foreign Affairs and International
Cooperation, Djibouti, 15 June 2005.
[27]See Landmine Monitor
Report 2004, p. 398.
[28]Statement by Brig. Gen.
Zakaria Cheick Ibrahim, Ministry of Defense, 29 January 2004; Annex to Article 7
Report, 6 February 2004.
[29]For more information, see
Landmine Monitor Report 2004, p. 398.
[30]ICRC, “Annual Report
2004,” Geneva, June 2005, p. 128.
[31]For more information, see
Landmine Monitor Report 2004, p. 399.