Mine Ban Treaty Article 5 deadline: 1 March 2022
(Not on track to meet deadline)

In 2015, Turkey established a National Mine Action Centre (NMAC), which is in the process of becoming fully operational, and submitted a plan for mine clearance, although it is not on track to meet its extended Mine Ban Treaty Article 5 clearance deadline.

Recommendations for action

• Turkey should ensure its NMAC is fully operational as soon as possible.
• Turkey should award the tenders for clearance of the eastern borders and move forward, without delay, with the tender process in non-border areas.
• Turkey should provide additional details of ongoing survey of eastern border areas, and also provide information on how and when it will address the huge contamination in this region that is not specified in its March 2015 workplan.
• Turkey should re-consider its decision not to begin clearance on the Syrian border, especially as civilians fleeing fighting across the border are being killed and injured in minefields under Turkish jurisdiction.
• Turkey should report on plans for clearance of mined areas under its control in northern Cyprus, in order to meet its Mine Ban Treaty obligations.
• Turkey and Cyprus should both heed the UN Secretary-General’s call for intensified efforts to facilitate access to all remaining mined areas inside and outside the buffer zone to achieve a mine-free Cyprus.

Contamination

The Republic of Turkey has almost 173km² of confirmed hazardous area (CHA) containing mines across 3,080 areas, as set out in the table below. There are a further 701 suspected hazardous areas (SHAs) containing mines, but the area they cover and the number of mines within them is unknown. 

Mine contamination as of end 2014[1]

Eighteen of the 81 provinces in Turkey still contain CHAs or SHAs, as set out in the table below. The number of mined areas along the Iraqi border, as well as part of the Iranian border, is an estimate, as, according to Turkey, precise calculation is hampered by terrorist activities and the presence of SHAs. Furthermore, the number of mines along the Syrian border is expected to be less than that indicated because of destruction by smugglers and wildfires.[2]

Mine contamination by province as of end 2014[3]

Note: * Includes 157,251m² of mined area cleared in 2014, but not yet deducted because mine clearance units of the Turkish armed forces had not yet been accredited by the newly established NMAC.[4]

Turkey is contaminated with antipersonnel and antivehicle mines, as well as improvised explosive devices (IEDs). The great majority of antipersonnel mines in Turkey are found along the borders, and were laid in 1955–1959 along the border with Syria, as well as on some sections of the border with Armenia, Azerbaijan, Iran, and Iraq, in order to prevent illegal border crossings. According to Turkey, its western borders with Bulgaria and Greece, as well as the border with Georgia, are mine-free.[5] Mines were also laid around military installations.[6] Government forces emplaced landmines during the 1984–1999 conflict with the Kurdistan Workers’ Party (Partiya Karkerên Kurdistan, PKK) in the southeast of the country. According to the Ministry of Foreign Affairs, these mines have been progressively cleared since 1998.[7] In addition to mines laid by Turkish security forces, non-state armed groups have also employed mines and IEDs, rendering the clearance process more complex.[8]

In its Mine Ban Treaty Article 5 deadline extension request, submitted in March 2013, Turkey estimated that a total of 3,520 confirmed and suspected hazardous areas containing mines covered almost 215km². This estimate was provisional as the size of the 346 suspected mined areas was unknown.[9]

In March 2015, Turkey submitted an updated workplan for its mine clearance activities, in which it reported a total of 3,080 CHAs and 701 SHAs, of which the CHAs cover more than 172km².[10] The area of contamination and the number of emplaced mines are not known for the 701 SHAs; therefore the total estimated contaminated area is likely to be significantly larger. The largest mined area is on the border with Syria (144.29km²), with smaller areas on the borders with Iran (21.33km²), Iraq (2.86km²), and Armenia (1.10km²). A further 873 mined areas covering a total of 3.11km² have been identified in non-border areas (referred to by Turkey as “mined areas in areas other than borders”).[11]

Turkey reported that the 157,251m² of mined area it cleared in 2014 had not yet been deducted from the overall mine contamination as of end 2014 (172.69km²), because mine clearance units of the Turkish armed forces had not yet been accredited by the newly established NMAC.[12] 

In Annex II to its updated workplan, Turkey provided a comparison between contamination reported at the time of its 2013 Mine Ban Treaty Article 5 extension request and revised contamination data reported in its 2015 workplan.[13] The comparison showed that in border areas the number of SHAs rose by 216, whereas the number of CHAs reduced by 118, corresponding to a 41.39km² reduction in CHA between the 2013 extension request and the 2015 workplan. In non-border areas the number of CHAs increased by 30, with the area of CHA increasing by 0.49km² between the two datasets. In addition, the number of SHAs in non-border areas increased by 139.

Turkey’s explanations for these differences included: mis-registration of some explosions, as revealed by detailed analysis and comparison of mine clearance and incident reports; re-registration of minefields that were initially cleared and de-registered from records, but not duly certified; correction of minefield registers where some of the minefields were found to be registered more than once; improper completion of registration forms, including minefield coordinates; relocation of mines over time due to natural resources; inability to thoroughly check some area for mines due to continuing terrorist activity; and re-registration of some minefields along the borders as “minefields in areas other than borders” to “minefields for the eastern, south-eastern (Iraqi border),” and vice versa, following transfer of responsibility of border areas from the Gendarmerie General Command to the Turkish land forces.[14]

Up to 80% of mined areas along the Syrian border are on arable land, which cannot be used. The risk to livestock is widespread, especially where fencing is damaged. Mined areas have also prevented access for development activities.[15] 

Cyprus

Cyprus is also contaminated with antipersonnel and antivehicle mines, mostly in areas currently under Turkish control (for further details see the separate report on Cyprus).

Program Management

Previously, Turkey had reported that efforts were underway to centralize coordination of clearance activities through efforts by the Ministry of National Defense to establish a national mine action authority (NMAA) and a NMAC. In its 2013 Mine Ban Treaty Article 5 deadline extension request, Turkey reported that a draft law on the establishment of a NMAA and a NMAC had been completed and was awaiting input from other ministries before delivery to the prime minister to submit to parliament.[16] The law was expected to pass through parliament in 2014.[17]

On 22 January 2015, Law No. 6586 on the “Establishment of a National Mine Action Centre and Amendment of Some Other Laws” was adopted by the Turkish Grand National Assembly and subsequently entered into force on 3 February 2015, following its publication in the Official Gazette by Presidential Approval. The law aims to define the modalities and provide the basis regarding the functions, jurisdictions, and responsibilities of the NMAC, which will carry out humanitarian clearance of mine and/or unexploded ordnance (UXO) in Turkey.[18] The law entitles the NMAC, which was established under the Ministry of National Defense, to: elaborate policies for this clearance; plan and steer related activities; monitor their implementation; and carry out the necessary coordination and cooperation with domestic and foreign institutions.[19]

The NMAC was reportedly established on 3 February 2015,[20] and as of September 2015, recruitment was taking place and it was in the process of becoming fully operational.[21] Until the NMAC becomes fully functional, mine action activities appear to remain largely decentralized and divided between various national authorities in Turkey. The Turkish armed forces currently conduct clearance activities in non-border areas and around military installations, while mine clearance along the eastern borders is carried out as part of the European Union (EU) Integrated Border Management Project, under the supervision of the Ministry of Interior.[22]

Clearance along the southeastern/Iraqi border are not scheduled to commence until 2019, and clearance along the Syrian border, which formerly fell under the Ministry of Defense, is not expected to take place until after the end of armed conflict in Syria. When it occurs, clearance in both the southeastern/Iraqi borders and the Syrian border will come under the responsibility of the NMAC.[23] 

Concerning the Syrian border, prior to the establishment of the NMAC, an Interministerial Coordination Board within the Ministry of National Security, which commenced work on 26 October 2010, was said to be meeting regularly and “practically functions as the National Mine Action Authority” to coordinate all government agencies involved in mine clearance activities and related undertakings.[24] Following the adoption of new Law No. 6586, in February 2015, on the establishment of a national mine action center, the status of this Coordination Board is unclear. It is also unclear whether Turkey plans to establish a NMAA. 

Strategic planning

In March 2015, Turkey reported that following the official inauguration of the NMAC, a national mine action strategy for 2016–2022 would be prepared by NMAC in 2015 and submitted to the Council of Ministers.[25] However, the strategy was likely to be delayed until after the general elections in Turkey, which were due to take place in November 2015.[26]

Turkey’s workplan,[27] as of March 2015, is incorporated into the following summaries of planned clearance by region.

Syrian border

In its Mine Ban Treaty Article 5 deadline extension request Turkey gave priority to clearing the Syrian border, which is 911km long and on average 350 meters wide, and estimated to account for two-thirds of the mines and close to 90% of the remaining mined area in the country. Officials observed it is also the easiest border to clear because the terrain is flat and there has been minimal displacement of mines as a result of factors such as land erosion. Turkey expected to complete clearance of mines along the Syrian border by the end of 2019,[28] however, the ongoing Syrian conflict has disrupted clearance plans, and Turkey has subsequently stated that clearance will not begin along the Syrian border until after the conflict ends.[29]

Turkey and Syria reportedly agreed in 2003 to demine their common border.[30] Law No. 5903 on the “tender and mine clearing activities along the land border between Turkey and Syria” was adopted by the Turkish parliament and approved by the president on 17 June 2009, giving both the lead role as well as the responsibility for inviting tenders for demining to the Ministry of National Defense.[31] If this process did not work, the Ministry of Finance would have the minefields cleared by means of “service procurement.” If this method also failed, the law said the government would invite companies to tender for demining in exchange for the right to cultivate lands suitable for agriculture for up to 44 years.[32] 

The law also provided for the possibility of “requesting the services of the NATO Maintenance and Supply Agency” (NAMSA).[33] Turkey said in June 2011 it had concluded a “sales agreement” with NAMSA for quality management and technical support.[34] A NAMSA advisor in Ankara provided technical support on such issues as tendering procedures and contract management.[35] In March 2013, officials reported that NAMSA was no longer involved in the tender process, but it would conduct quality control and assurance after clearance was completed.[36]

Turkey announced in 2011 that tenders would be invited for clearance of the 911km-long Syrian border, divided into six separate areas, with a total mined area of 212km² (larger than the area subsequently reported in its Mine Ban Treaty Article 5 deadline extension request).[37] The government had initially planned for a deadline of June 2011 for tenders with a view to starting clearance in 2011.[38] 

To facilitate demining, the Ministry of National Defense divided the Syrian border area into two main regions. The first encompassed four sectors, comprising the 527km stretch between Çobanbey and Cizre, and it was expected that clearance of this region would be completed in 2017. Completion of clearance of the second region, comprising the 384km stretch between Çobanbey and Denizgören, was forecast for 2019.[39] The estimated total cost of the Syrian Border Mine Clearance (SBMC) Project was US$550 million, to be financed with national resources.[40] In May 2012, Turkey told the Mine Ban Treaty Intersessional Meetings in Geneva that bids would be submitted only by 15 June 2012 for clearance of the first region, and continuing until 2016. Bidding for the second region’s project, would begin only after “validation of the contract” for the first section, and would continue until the end of 2016.[41] Eleven demining companies reportedly bid for the first project but, in June 2013, the Ministry of National Defense cancelled tenders for clearing the border because of developments in Syria.[42]

At present, mine clearance activities along the Syrian border are not expected to commence until after the end of the conflict in Syria. When clearance does begin, it will be coordinated by the NMAC (once it becomes operational), as part of the strategic mine action plan that is being developed.[43] 

Eastern borders

Turkey’s 2013 Mine Ban Treaty Article 5 extension request sets out plans for clearance of its eastern borders, beginning with the Armenian border and continuing southwards to the borders with Azerbaijan, Iran, and Iraq.[44] It was forecast that 13.5km² would be cleared in phase one of the project and 2.4km² in phase two. Demining for both phases was envisaged to start by the end of 2014, after completion of the tender process with demining companies.[45] Two-thirds of the total cost of the three stage project, amounting to €30 million, was expected to be financed as part of an EU “Pre-accession Financial Assistance Scheme.”[46] 

In 2015, Turkey confirmed that mine clearance operations along the eastern borders are to be carried out as part of the EU Integrated Border Management Project, in two phases, under the supervision of the Ministry of Interior.[47] Tender preparations for the first phase of the clearance activities were reported to be ongoing as at September 2015.[48] Phase one of the project scheduled for 2015–2017 was expected to result in the clearance of 223 mined areas over an area of just less than 11.67km² and the destruction of 189,863 antipersonnel mines.[49] Phase two of the project is scheduled for 2017–2019, but the number of mined areas and total area to be cleared is yet to be determined, subject to continuing surveys.[50] A budget of €26.4 million (approx. US$29 million) has been allocated for the first phase and €13.4 million (approx. US$15 million) for the second.[51]

Southeastern/Iraqi border

Clearance along the southeastern/Iraqi border is not scheduled to commence until 2019, after completion of phases one and two of the EU Integrated Border Management Project along the eastern borders. Mined areas along the Iraqi and eastern border will be cleared in accordance with the strategic mine action plan, to be prepared by the NMAC once it is operational.[52]

Clearance of the 969 mined areas, totaling just over 2.86km², is scheduled to take place in 2019–2021, with the destruction of 79,017 antipersonnel mines. This represents all known mine contamination in this region. The resources for the clearance will be determined by the NMAC.[53]

Non-border areas

In its 2013 Mine Ban Treaty Article 5 deadline extension request, Turkey reported partial clearance in non-border areas would be conducted by the Turkish armed forces, until the establishment of an operational NMAA and NMAC, and a subsequent tendering process. No dedicated budget had been allocated for clearance in these interior regions. To date, mine clearance in non-border areas has been conducted only on a limited scale to clear pathways for urgent need.[54] It was anticipated that clearance would be conducted in 2015–2022.[55]

In its 2015 updated workplan, Turkey estimated that all 873 mined areas in non-border areas would be cleared in 2015–2021, totaling 3.1km², with the destruction of 34,410 antipersonnel mines. This represents all known mine contamination in the region.[56]

Of the total interior contaminated area, the Turkish armed forces are forecast to clear 280 mined areas over 1.51km² with the destruction of 18,558 antipersonnel mines. Cleared areas will be certified and opened for humanitarian use following the establishment of the NMAC.[57] It is forecast that the remaining 593 mined areas, over 1.59km², and the destruction of 15,852 antipersonnel mines will be cleared in accordance with the mine action plan, which will be prepared. The budget of Turkish Lira 84,300,000 (approx. US$29 million) for clearing these areas will be prepared by the NMAC.[58] 

In this region, Turkey prioritizes its mine clearance activities based on areas used for military operations; areas with low or no risk of terrorist threat; and areas where the local population may benefit from agriculture and livestock.[59]

Standards 

In March 2013, Turkey reported that the “Interministerial Coordination Board,” which in practice functioned as a NMAA, had been working to develop Turkish Mine Action Standards (TMAS), using the International Mine Action Standards (IMAS) as a template.[60] 

At present, all land release activities are based on the standards and principles outlined in the Syrian Border Mine Clearance Standards (SBMCS), which were prepared by the Ministry of National Defense and are based on the IMAS. According to Turkey, although these standards were developed exclusively for the Syrian border, they are also applicable for clearance of other areas.[61]

Operators

Syrian border

A bidding process for clearance operations on the Syrian border, initiated on 2 February 2012, was officially cancelled on 20 June 2013 due to armed conflict in Syria. Mine clearance activities along the border are currently on hold, and will begin once the conflict ends. The tender process and clearance operations will be coordinated by the NMAC.[62] 

Eastern borders 

Mine clearance activities along the eastern borders are to be carried out in two phases as part of the EU Integrated Border Management Project, under the supervision of the Ministry of Interior.[63] Tender preparations for the first phase of the clearance activities were reported to be “ongoing” in September 2015.[64] 

Southeastern/Iraqi border

Mine clearance in the southeastern/Iraqi border areas is not due to begin until 2019, after completion of phases 1 and 2 of the EU Integrated Border Management Project along the eastern border. Clearance in the southeastern/Iraqi border areas will be conducted in accordance with the national mine action strategy.[65]

Non-border areas

In its Mine Ban Treaty Article 5 deadline extension request, Turkey reported that until a NMAC had become operational, and clearance operations were tendered out, mine clearance in non-border areas would continue to be carried out by mine clearance units of the Turkish armed forces. Assets used include hand detectors, mine detection dog (MDD) teams, and mechanical assets. Following the establishment of the NMAC, the center will take over the ongoing clearance activities, including the tender process.[66] 

Land Release

Between December 2013 and January 2015, Turkish armed forces cleared 157,251m² of land, destroying 1,506 antipersonnel mines and 19 antivehicle mines during clearance operations.[67] Turkey further reported that this amount had not yet been deducted from the total remaining CHA as of end 2014 (172.69km²), because the newly established NMAC had not yet accredited mine clearance units of the Turkish armed forces.[68]

Survey in 2014

Turkey did not report any survey in 2014.

Clearance in 2014

Between December 2013 and January 2015, 157,251m² of CHA was cleared, of which 11,000m² was cleared on the Iranian border and the remaining 146,251m² was cleared in non-border areas. During this period, 1,506 antipersonnel mines and 19 antivehicle mines were destroyed (see table below). Not all the mines cleared have a corresponding area of land released/cleared, as some of the mine clearance, especially on the Syrian border, is to meet military objectives only. 

Mine clearance between December 2013 and January 2015[69]

Turkey had revealed in its 2013 Mine Ban Treaty Article 5 deadline extension request, that since 1998, it had only cleared a total of 1.15km² of mined area, close to three-quarters of it in one year (2011), with destruction of 760 antipersonnel mines and 974 antivehicle mines. In addition, military teams had cleared 24,287 mines, but only to allow safe movement of troops, not to release a contaminated area.[70]

Article 5 Compliance

Under Article 5 of the Mine Ban Treaty (and in accordance with the eight-year extension granted by States Parties in 2013), Turkey is required to destroy all antipersonnel mines in areas under its jurisdiction or control as soon as possible, but not later than 1 March 2022. Turkey is not on track to meet this deadline.

Turkey’s original Mine Ban Treaty Article 5 deadline was 1 March 2014. At the Eleventh Meeting of States Parties in December 2011, Turkey disclosed that clearance of its border with Syria would not be completed until 2016. In 2012, it acknowledged to the Twelfth Meeting of States Parties that it would seek an extension to its deadline.[71]

Turkey submitted a Mine Ban Treaty Article 5 extension request in March 2013 asking for an eight-year extension until 2022 to complete clearance of all mined areas. Turkey stated that the envisaged timeframe was subject to revision pending progress with tenders and clearance activities on the ground.[72]

In its 2013 Mine Ban Treaty Article 5 extension request, Turkey cited a number of circumstances that had impeded it from carrying out mine clearance activities, including delays in the establishment of a NMAA and NMAC, which will supervise mine clearance activities; adverse weather conditions only allowing clearance activities to be conducted for five or six months a year; security problems posed by the continuing terrorist threat; mined territories contaminated with metal residues resulting from the fight against terrorism; uncertainties with regard to the mine-free status of some areas due to the irregular completion of registration forms; and topographical challenges. According to Turkey, the eastern and southeastern borders and non-border areas are the most complicated to address due to topographical difficulties.[73]

The 2013 Mine Ban Treaty Article 5 extension request provided a more detailed statement than previously on Turkey’s mine contamination and its plans to tackle it, but shed no light on some key issues, creating uncertainty over the prospects of it fulfilling its clearance obligations. No budget had been allocated for clearance of mined areas inside the country, which have caused most of Turkey’s mine casualties. A budget was subsequently allocated in Turkey’s 2015 updated workplan.[74]

In granting the 2013 Mine Ban Treaty Article 5 deadline extension request, the Thirteenth Meeting of States Parties recalled the number of efforts to be carried out during 2013–2014, crucial to the success of the implementation of Turkey’s plan, and requested Turkey report to the Third Review Conference in June 2014 on: the tendering processes for clearance along Turkey’s border with Syria, and the results of any related demining efforts and annual milestones of expected progress; the tendering processes for the clearance of areas along Turkey’s eastern borders; developments in the establishment of the NMAA and NMAC; and process in clearance of mined areas in non-border areas.[75] Turkey did not provide a publicly available update on clearance progress at the Third Review Conference.

Turkey’s total mine clearance to date only amounts to a small fraction (less than 1%) of the overall mine contamination, and more than 11 years after becoming a State Party to the Mine Ban Treaty, Turkey has only made very marginal progress in addressing mine contamination. 

Mine clearance in 2010–2014[76]

In granting Turkey’s 2013 Mine Ban Treaty Article 5 deadline extension request, the Thirteenth Meeting of States Parties noted that “any additional delays in the establishment of a NMAA and NMAC should not further delay clearance efforts from proceeding.”[77] The adoption, in January 2015, of a law to establish a NMAC should mean that the center, which has now been established, can become fully operational without further undue delay.

However, while Turkey’s submission of an updated workplan for Mine Ban Treaty Article 5 implementation in March 2015 and the establishment of a NMAC can be viewed as positive developments, the workplan itself only includes plans to address a small portion (10%) of overall mine contamination, and it is unclear how and when the remaining contamination will be addressed. This is of particular concern, and was highlighted in the preliminary observations of the Committee on Mine Ban Treaty Article 5 implementation, produced for the Mine Ban Treaty Intersessional Meetings in June 2015.[78] The Mine Ban Treaty Article 5 Committee observed “that Turkey’s plan at present suggests that it will not be able to complete implementation of Mine Ban Treaty Article 5 by its deadline in 2022.”[79]