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A HALO demining worker carefully probes for mines in Ukraine.
Credit: Tom Pilston/HALO

BRATISLAVA, May 5 2025 (IPS) – As a string of European states announce withdrawals from a global treaty banning antipersonnel landmines, campaigners are warning countless lives could be put at risk as decades of progress fighting the weapons come under threat.

On April 16, Latvia’s parliament approved the country’s withdrawal from the Ottawa Convention. This came just weeks after Estonia, Lithuania, Poland, and Finland all announced their intention to pull out of the treaty.

The countries have argued the move is a necessary security measure in light of growing Russian aggression.

But campaign groups have said that pulling out of the treaty is undermining the agreement itself with serious humanitarian implications.

“While far from the end of the treaty, this is a very big setback for the treaty and a very depressing development. Antipersonnel landmines are objectionable because they are inherently indiscriminate weapons and because of their long-lasting humanitarian impact,” Mary Wareham, deputy director of the Crisis, Conflict and Arms Division at Human Rights Watch, which is a co-founder of the International Campaign to Ban Landmines (ICBL), told IPS.

“The supposed military benefits of landmines are far outweighed by the devastating humanitarian implications of them,” she added.

The 1997 Ottawa Treaty bans the use, production, transfer, and stockpiling of antipersonnel landmines. It has been ratified or accepted by 165 countries—Russia, the United States, China, North Korea, Iran, and Israel are among those that are not signatories.

HALO demining in action. Credit: Tom Pilston/HALO

Campaign groups supporting the ban highlight the devastation landmines cause not just from direct casualties but also from driving massive displacement, hindering the delivery of humanitarian aid and impeding socio-economic recovery from conflict.

Meanwhile, the vast majority of those killed by landmines—80%—are civilians, with children particularly vulnerable.

“The presence of mines and other explosive ordnance continues to cause high levels of fatalities and serious injury, often resulting in life-long disabilities, with disproportionate impacts on children, persons with disabilities, and those forced to return under desperate conditions,” Shabia Mantoo, UNHCR spokesperson, told IPS.

“In addition to the high death toll, injuries and their aftereffects, including psychological damage, the presence of explosive devices hinders access to local livelihoods such as pastures, fields, farms, and firewood, as well as community infrastructure. They also affect the delivery of humanitarian aid and development activities. For humanitarian actors, their ability to safely reach communities with high levels of humanitarian needs and vulnerabilities and deliver life-saving assistance and protection  are often seriously constrained due to risks posed by explosive devices,” Mantoo added.

Humanitarian groups say the treaty has been instrumental in reducing landmine casualties from approximately 25,000 per year in 1999 to fewer than 5,000 in 2023. The number of contaminated states and regions has also declined significantly, from 99 in 1999 to 58 in 2024.

The treaty also includes measures requiring member countries to clear and destroy them as well as to provide assistance to victims, and as of the end of last year, 33 states had completed clearing all antipersonnel mines from their territory since 1999.

But in recent years, landmine casualties have grown amid new and worsening conflicts.

Data from the ICBL’s Landmine Monitor (2024) showed that in 2023, at least 5,757 people were killed or injured by landmines in 2023—a rise of 22 percent compared with 2022—in 53 countries.

The highest number of casualties—1,003—was recorded in Myanmar. This was three times the number in 2022. This was followed by Syria (933), Afghanistan (651), Ukraine (580), and Yemen (499).

In a special report on the continuing risks posed by mines and explosive remnants of war (ERW), the presence of which is known as ‘weapon contamination,’ released earlier in April, the International Committee for the Red Cross (ICRC)  warned that in 2025, the humanitarian impact of weapon contamination would likely continue to rise.

“The increased use of improvised explosive devices, shifting frontlines, and worsening security conditions will make survey and clearance efforts even more complex and therefore leave communities exposed to greater danger,” the report stated.

In two of the world’s most landmine-contaminated countries, Myanmar and Ukraine, the severe humanitarian impact of massive landmine use is being made horrifyingly clear.

In Myanmar, local aid groups say the ruling military junta’s use of landmines has escalated to unprecedented levels, while rebel groups are also deploying them. Roads and villages have been mined—ostensibly for military purposes, although many observers say they are just as often used to terrorize local populations—leading to not just civilian deaths and horrific injuries but also hindering vital medical care and aid efforts. Mines have been used in all 14 Myanmar states and regions, affecting about 60 percent of the country’s townships.

The mines have been an extra problem in the aftermath of the devastating earthquake at the end of March. The International Committee for the Red Cross (ICRC) said just days after the disaster, which killed more than 3,000 people, that as people relocated to areas less impacted by the earthquake and local and international organizations planned their response, ERWs were threatening not just the lives of those moving but also the safe delivery of humanitarian relief.

A group of HALO deminers with their equipment prepare for work. Credit: Tom Pilston/HALO

In Ukraine there has been extensive landmine use since Russia’s full-scale invasion of the country in February 2022. Russian forces have mined vast swathes of land, while there have been reports that Ukrainian forces have also used anti-personnel mines. It is estimated approximately 174,000 square kilometers, almost 30 percent of Ukraine’s territory, are affected by landmines and ERWs.

“According to NATO, Ukraine is now the world’s most mine-affected country and has seen the most mine laying since World War II.  The humanitarian impact of this contamination has been multifaceted—as well as vast swathes of prime farming land being contaminated, adversely affecting food security, civilian areas are also badly affected, including schools, residential zones, roads, and key infrastructure, leading to widespread displacement,” a spokesperson for the HALO Trust, a major humanitarian NGO carrying out demining operations around the world, including Ukraine, told IPS.

The spokesperson added that the effects of extensive landmine laying in the country may be felt for decades to come.

“HALO deminers are working in liberated areas, but it will take many years—if not decades— to clear Ukraine of landmines. Areas closest to the frontlines, such as Kharkiv and Sumy, are the areas where most people have been displaced, and some parts of these regions may remain uninhabitable until made completely safe. Any additional minelaying will extend the risk to civilian populations, agricultural production, and global trade for decades to come,” they said.

Anti-landmine campaigners also warn that if countries pull out of the Ottawa Convention, there is a risk that the use of landmines will become normalized.

“Increased acceptance [of landmines] could lead to wider proliferation and use, recreating the extensive contamination seen in Ukraine, Myanmar, and other conflict zones. In addition, withdrawal risks normalizing the rejection of humanitarian standards during times of insecurity, potentially undermining other crucial international norms. The ICBL has warned of a dangerous slippery slope where rejecting established norms during tense periods could lead to reconsideration of other banned weapons (e.g., chemical and biological weapons),” Charles Bechara, Communications Manager at ICBL, told IPS.

“Landmine survivors worldwide are shocked and horrified that European countries are about to undermine such progress and make the same mistake that dozens of other countries now regret. When European nations withdraw [from the Ottawa Convention], this sends a problematic message to countries facing internal or external security threats that such weapons are now acceptable,” he added.

However, it is not just withdrawals from the Ottawa Convention that are worrying anti-landmine groups.

Funding for demining efforts as well as services to help victims are under threat.

While the United States is not a signatory to the Ottawa Convention, it has been the largest contributor to humanitarian demining and rehabilitation programs for landmine survivors over the past 30 years. In 2023, it provided 39 percent of total international support to the tune of USD 310 million.

But the current halt to US foreign aid funding means that critical programs are now at risk, according to the ICBL.

“The US funding suspension threatens progress in heavily contaminated countries where casualty rates had been significantly reduced through consistent mine action work,” said Bechara.

He added the stop on funding would have “severe consequences for treaty implementation goals,” including the disruption or cessation of mine clearance operations in over 30 countries, a pause on victim assistance programs providing prosthetics and rehabilitation services, curtailment of risk education initiatives that help communities avoid mines, job losses at demining organizations, and problems implementing other humanitarian and development work because agencies depend on mine clearance to safely access areas.

Meanwhile, supporters of the Ottawa Convention are urging the countries currently intending to leave the landmine treaty to rethink their decisions.

“For Latvia and other countries considering withdrawal from the Mine Ban Convention, the ICBL is clear that weapons that predominantly kill and injure civilians cannot safeguard any nation’s security. Military experts, including Latvia’s own National Armed Forces commander, have concluded that modern weapon systems offer more effective defensive capabilities without the indiscriminate harm to civilians,” said Bechara.

“Despite the threats against the Mine Ban Treaty, the ICBL’s message is for countries to immediately cease their withdrawals and stand behind the treaty. Long-term security and safety cannot be ensured by a weakened international humanitarian law, which was conceived specifically to protect civilians in dire security situations,” he added.

IPS UN Bureau Report

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