Contaminated by: landmines (massive contamination), cluster munition remnants (medium contamination), and other unexploded ordnance (UXO).

Article 5 deadline: 1 March 2019
(Not on track to meet deadline)

Article 4 deadline: 1 March 2021
(On track to meet deadline)

As of the end of 2015, Bosnia and Herzegovina (BiH) had 1,149km² of suspected hazardous area (SHA) and was contaminated by antipersonnel mines with 23km² of confirmed hazardous area (CHA).[1] In 2015, BiH released 1.64km² by clearance and 8.39km² by technical survey. A further 16.17km² was canceled. The European Union (EU) pilot project on land release continued in 2015, and national standards were developed on land release, technical survey, and non-technical survey (NTS).

BiH is contaminated by cluster munition remnants. There are 0.85km² of CHA and 7.3km² of SHA. Sixty communities across seven cantons are affected. In 2015, a total of 0.23km² of cluster munition-contaminated area was released by clearance while 0.76km² was reduced by technical survey. A further 0.47km² was canceled by NTS.

Recommendations for action 

• BiH should implement the recommendations of the UN Development Programme’s (UNDP) Mine Action Governance and Management Assessment.[2] In particular, BiH should continue reforming the governance and management of its mine action program, empowering the Demining Commission to provide political leadership, root out corruption, and begin consultations with a wide range of local and international stakeholders on a new mine action law.
• BiH should review, adopt, and operationalize new evidence-based methods of land release for mined areas and cluster munition remnants, to more accurately delineate areas of confirmed contamination, and cancel or reduce areas where evidence of mines is lacking.
• BiH should conduct a high-level effort to seek new local, national, and international sources of funding.
• BiH should update its completion plan for mine survey and clearance, based on the findings of the 2015 revision of the mine action strategy and latest available information.
• The BiH Mine Action Center (BHMAC) should ensure it reports more accurately and consistently on land release data (disaggregated by method of release), as well as on mined areas, including using the terms CHA and SHA in a manner consistent with the International Mine Action Standards (IMAS).
• BiH should accelerate clearance of cluster munition remnants to fulfil its Article 4 obligations as soon as possible, as required by the Convention on Cluster Munitions.
• BiH should develop a strategic plan for the release of areas confirmed or suspected to contain cluster munition remnants.
• The demining capabilities of the BiH armed forces and the Federal Administration of Civil Protection should be enhanced by the provision of new equipment and training.

BiH is heavily contaminated with mines and explosive remnants of war (ERW), including cluster munition remnants, primarily as a result of the 1992–1995 conflict related to the break-up of the Socialist Federal Republic of Yugoslavia.[3]

Mine Contamination

Most minefields are in the zone of separation, 1,100km long and up to 4km wide, between BiH’s two political entities—the Federation of Bosnia and Herzegovina (FBiH) and Republika Srpska (RS). Twenty years after the end of the conflicts, BiH is still the most heavily mined country in Europe and one of the top 10 in terms of extent of contamination in the world.

BiH has reported different figures for its estimate of mine contamination as of the end of 2015.[4] In both its Mine Ban Treaty Article 7 transparency report and Convention on Conventional Weapons (CCW) Protocol V Article 10 Report, it refers to 1,149km² of SHA (approximately 2.3% of its territory).[5] However, two different figures are provided for size of CHAs. The BHMAC reported 23km² of CHA, whereas the Mine Ban Treaty Article 7 report details an estimated 300km² of CHA, though it is unclear what this refers to.[6] An estimated 82,000 mines and items of UXO remain to be cleared.[7] 

Antipersonnel mine contamination by canton as of end 2015[8]

A 2015 UNDP evaluation reported that BHMAC is aware that not all of the SHA is actually mined, but “without more efficient non-technical survey and technical survey procedures the exact extent of the problem cannot be quantified.”[9]

BHMAC reported that a general assessment of mines across the country identified 1,369 affected communities, threatening the safety of 517,238 inhabitants, some 15% of the total population of BiH.[10] Of the total SHA, 62% is forested, 26% agricultural land, and 12% infrastructure.[11] Mine contamination is said also to obstruct the return of refugees and the displaced; impede rehabilitation and development of utility infrastructure; and prevent free movement between communities, especially on the administrative line between the entities.[12]

The fertile agricultural belt in the Posavina region, along with the Doboj region, has the most heavily contaminated areas.[13] However, according to BHMAC, most mine incidents now occur in forested areas.[14] In 2015, only one mine-related accident was recorded, resulting in a fatality.[15]

BHMAC confirmed that while border crossings in BiH are safe from the threat of mines, there may be a threat in the vicinity of some of the crossings, but these areas are fully marked with warning signs.[16] BHMAC cited the potential movement of refugees in the vicinity of non-legal border lines as a challenge in 2015, due to the proximity of SHAs.[17]

BiH was severely affected by the Balkan flood disaster in May 2014, which reminded the international and local community of the task of mine clearance that still remains in BiH, and emphasized the need to push for a non-stagnated mine action sector.[18] The EU’s 2014 Flood Recovery Needs Assessment for BiH found that while minimal mine mitigation was needed compared to that expected, mines and UXO remain a risk in human, economic, and social terms and should be addressed as a priority.[19] The EU needs assessment recommended that BHMAC consider the possibility that landslides may have buried landmines deeper than the 10cm to 20cm currently investigated in clearance efforts.[20] The assessment identified key priorities and tasks for mine action to aid the recovery.[21]

Cluster Munition Contamination

At the end of 2015, BiH had 25 areas covering a total of 0.85km² confirmed to contain cluster munition remnants, while a further 294 areas over 7.3km² were suspected to contain cluster munition remnants (see the table below).[22] This compares to reported contamination at end of 2014, of 17 CHAs over a total of 0.78km², and 400 SHAs over 8.76km².[23]

Cluster munition contamination at the end of 2015[24]

The contamination figures in the above table differ from those reported in BiH’s latest Convention on Cluster Munitions Article 7 transparency report, which claimed 7.3km² was the total of all contamination. No reference is made to the 0.85km² of confirmed area reported separately by BHMAC.[25] Of the total suspected cluster munition contamination, 4.3km² is also suspected to be contaminated with antipersonnel mines.[26]

Contamination by cluster munition remnants dates back to 1992–1995,[27] the result of the conflicts related to the break-up of the Socialist Federal Republic of Yugoslavia.

BiH stated it had released 6.92km² of hazardous area in 2012–2015, reducing suspected cluster munition contamination from 14.6km² to 7.69km², an overall reduction of 47%. Approximately half (3.65km²) was released through technical survey or clearance in 44 separate tasks. In operational activities, 1,406 submunitions and 53 other explosive remnants of war (ERW) were found and destroyed.[28]

Contamination by cluster munition remnants in BiH is a humanitarian risk, impeding access to natural resources and posing an obstacle to rehabilitation and development of infrastructure.[29] Sixty communities have been identified as affected with cluster munition remnants, of which 31 are also affected by mines.[30] According to BHMAC’s records, the last submunition casualties occurred in 2009.[31] 

Program Management

The Demining Commission, under the BiH Ministry of Civil Affairs, supervises the state-wide BHMAC and represents BiH in its relations with the international community on mine-related issues.[32] The Demining Commission is composed of representatives from three ministries (civil affairs, security, and foreign trade and economic affairs) elected from the three constituent peoples of BiH and representing BiH’s three majority ethnic groups (Bosniaks, Croats, and Serbs).[33] Whereas the Minister for Civil Affairs remains ultimately responsible for mine action, the Demining Commission represents the strategic body responsible for setting mine action policy.[34]

BHMAC, established by a 2002 Decree of the Council of Ministers, is responsible for regulating mine action and implementing BiH’s demining plan, including accreditation of all mine action organizations.[35] BHMAC operates from its headquarters in Sarajevo, and through two main offices in Sarajevo and Banja Luka, and eight regional offices (Banja Luka, Bihać, Brčko, Mostar, Pale, Sarajevo, Travnik, and Tuzla).[36] A 2015 UNDP evaluation concluded that BHMAC was “doing a good job in operational management and in introducing new and more efficient procedures,” and was carrying out its core activities “effectively, despite not being fully funded.”[37] Prior to 2015, BHMAC’s governance and management had come under strong criticism (see 2015’s country profile), but major reforms are being implemented and an acting director of BHMAC was appointed on 22 September 2015 by the Council of Ministers of BiH, who will serve until the formal appointment of a new director.[38]

The UNDP supports and advises BiH Mine Action Management (the Minister of Civil Affairs, the Demining Commission, and BHMAC) on mine action issues, including facilitating ongoing liaison with the commission, BHMAC, and donors, in its capacity as co-chair of the Board of Donors. The UNDP also supports monitoring of implementation of the mine action strategy, including revisions, action plans, and evaluations of the strategy revision. It also supports implementation of some of the operational objectives of the revised strategy, such as supporting management of land release, and building the capacity of BHMAC to apply good governance principles in its management of mine action.[39]

Strategic planning

The BiH Mine Action Strategy for 2009–2019 guides mine action in BiH, but the original document does not mention clearance of cluster munition remnants. BHMAC conducted the first of three planned revisions of the strategy in 2012–2013.[40] The 2012 revision did refer to cluster munition remnants clearance,[41] but the revision was not formally adopted by the Council of Ministers.[42] The second revision of the strategy was conducted in 2015,[43] in consultation with the Demining Commission and the UNDP, and was adopted by the Demining Commission in BiH.[44] According to BHMAC, its new operational plan in the 2015 revision, envisaged that over the next two or three years all organizations would transition to conform to the new land release methodology.[45] As of May 2016, the Demining Commission was due to report to the Council of Ministers regarding information from the analysis of the strategy.[46] The third revision of the strategy is due to take place in 2017.

Mine action prioritization and planning in BiH is based on socio-economic impact. However, a UNDP evaluation recommended that the system be reviewed to reflect changing circumstances as well to take account of the specific impact of particularly dangerous mines such as the PROM-1.[47]

BHMAC’s next general assessment was planned for 2015, in collaboration with the State Agency for Statistics. As of May 2016, however, BHMAC was waiting for the release of official census data to update the assessment.[48] BHMAC expects the assessment, which will determine high-, medium-, and low-impact SHAs, to be mainly statistical, though some data will be gathered from local communities, coordinated by the eight BHMAC regional offices.[49]

Legislation and standards 

A new draft demining law, which was first submitted to parliament in 2010, has not received approval from the Council of Ministers,[50] after which it must be sent for parliamentary approval. As of May 2016, the Ministry of Civil Affairs was reportedly working on amendments and annexes in the demining legislation.[51] The UNDP has highlighted the need for the existing draft to be amended to ensure a strategic management body exists for mine action; that BiH national standards on land release are referenced; and that no technical issues impede land release. The UNDP has also asserted that any new law should have a public consultation stage before being adopted.[52] 

A BHMAC official acknowledged that the lack of a new legal framework has contributed to BiH’s repeated failure to meet its funding targets under its own mine action strategy.[53] Nevertheless, the UNDP 2015 evaluation stated that though a more robust legal framework for mine action in BiH would be welcome, the current demining law is adequate to enable mine action activities to be implemented effectively.[54]

In December 2012, having recognized the need for more efficient land release in BiH, the EU, with pre-accession funding, started a pilot “Land Release” project with BHMAC.[55] As part of this project, and by order of the Demining Commission, BHMAC developed three new chapters of its mine action standards in 2014 and 2015—on land release, NTS, and technical survey—in accordance with IMAS.[56] The new national standard chapters were drafted in cooperation with the UNDP and the Geneva International Centre for Humanitarian Demining (GICHD).[57] After public debate and feedback from demining organizations and other mine action stakeholders, the three new chapters were adopted by the Demining Commission on 27 January 2016.[58]

However, as of June 2016, revision of the corresponding land release standards for cluster munition remnants was still ongoing.[59] BHMAC also adopted a new standard operating procedure (SOP) for NTS of areas suspected to contain cluster munition remnants, based on Norwegian People’s Aid (NPA)’s SOPs.[60] In addition, rules and regulations were adopted for accreditation of organizations for technical survey and clearance of cluster munition remnants.[61] 

Quality management

The 2015 UNDP evaluation found that BHMAC’s quality assurance (QA) of demining activities functions well, but warned that as new methods of land release are implemented, QA teams would need to adapt to ensure the quality of the new procedures. The UNDP evaluation also recommended that BHMAC develop effective quality management mechanisms for the whole organization to make processes more efficient and transparent.[62]

Operators 

As of the end of 2015, 26 organizations were accredited for mine action in BiH, comprising five government organizations, nine commercial companies (seven national and two international), and 12 NGOs (10 national and two international).[63] However, only 17 of the 26 conducted demining operations in 2015. Three organizations conducted cluster munition remnants survey and clearance: NPA, the Federal Administration of Civil Protection (FACP), and the BiH armed forces.[64] BHMAC did not anticipate any change in clearance capacity in 2016.[65]

The governmental operators—Civil Protection teams and the BiH armed forces’ Demining Battalion—constitute about 60% of the real available operational capacity in BiH, though their total output in terms of land released by clearance and technical survey is proportionately much less.[66] The general view is that the armed forces and civil protection are both good partners and have effective demining capacities, but have suffered from a lack of real investment, and are slower than other operators due to logistical reasons and equipment deficits.[67] The 2015 UN assessment recommended that BHMAC involve the armed forces and civil protection teams more in conducting NTS, technical survey, and clearance tasks, as part of the land release process.[68] 

Since 2010, NPA has increasingly focused on building the capacity of the Demining Battalion.[69] This involves transfer of knowledge through operational planning of clearance and technical survey operations; direct operational support; and provision of mine detection dogs (MDDs) and equipment, among other things.[70] NPA’s own strategic plan foresaw withdrawal from BiH mine action in March 2015. However, given the slow progress of clearance in BiH and the impact of the floods, NPA maintained a similar level of capacity in 2015 as in 2014.[71]

Handicap International (HI) had ended its mine action activities in BiH at the end of 2012 and had closed down its office by March 2013. HI withdrew from BiH as part of an effort to focus on countries with lower human development indices. In 2014, however, following the floods, HI partnered with local organizations in Bratunac, Doboi, Kalesija, Maglai, Olovo, Zavidovici, Zepce, and Zvornik to conduct risk education and aid the process of “mapping contamination and marking or re-marking dangerous areas.”[72]

Clearance operators in BiH are not independently funded; instead they compete for international tenders. The UNDP evaluation suggested that this left much capacity underused and recommended alternative contracting models more appropriate for land release (either by having longer term contracts or being contracted for the clearance of larger areas), which could be more attractive to the demining organizations in terms of security and could also make best use of capacity in the long run.[73]

According to the 2015 UNDP evaluation, operators regret the absence of technical working group fora chaired by BHMAC to discuss technical issues and would like to see those fora revived.[74]

Land Release (Mines)

In 2015, BiH released 1.64km² by clearance and 8.39km² by technical survey. A further 16.17km² was canceled. This is less than in 2014, when 1.9km² was cleared, 10km² reduced by technical survey, and 30km² canceled by NTS.

Survey in 2015 (mines)

In 2015, 8.39km² was reduced by technical survey, 16.17km² was canceled by NTS, and 1.21km² was confirmed as mined (see table below).[75] Only BHMAC, with the assistance of an NPA non-technical survey team seconded to it, canceled SHAs and confirmed mined areas in 2015.

Survey of mined area in 2015[76]

Note: TS = technical survey.
* The 1.21km² confirmed as mined, corresponds to the surveyed area defined as requiring clearance. This excludes surveyed areas defined as requiring technical survey or permanent marking.

Clearance in 2015 (mines)

In 2015, mine clearance operations in BiH were conducted by the armed forces, the civil protection of FBIH, and the civil protection of RS, and fifteen other clearance organizations (see table below).[77] More than half of the organizations engaged in small tasks, clearing a total of less than 100,000m² each during the year.

Overall, a total of 1.64km² was cleared in 2015,[78] less than the 1.85km² cleared in 2014,[79] and well below the 2009–2019 mine action strategy target of 9.27km².

Mine clearance in 2015[80]

Note: AP = antipersonnel; AV = antivehicle.

Clearance operations in BiH include mechanical preparation of land, and the use of MDDs and manual clearance depending on the geographical conditions.[81] NPA is deploying MDDs in up to 70% of processed areas that have undergone clearance and traditional technical survey operations with previous mechanical ground preparation. Manual methods are only used on areas where the application of other methods is not possible due to the nature of the terrain or vegetation.[82]

One of the key developments that NPA reported in its clearance operations in 2015 was the implementation of a pilot project of targeted technical survey over suspected mined areas, in coordination with BHMAC. The project, which was conducted in the municipality of Travnik, in the Middle Bosnia canton, included development of SOPs, and application and testing of new techniques, processes, and procedures for targeted technical survey.[83] It is hoped that this will increase efficiency of land release, and ensure improved assessment of mined areas, with limited need for full clearance. For SHAs with incorrect minefield records, traditional systematic technical survey typically required 20%–30% of the resources needed for full clearance, whereas targeted technical survey only required 1%–3%.[84]

In addition, in 2015, NPA also deployed new techniques in BiH, including the use of special detection dogs and observation and recording of the dogs using drones.[85] 

Progress in 2016 (mines)

BHMAC envisaged that the land release project would treat 140km² of area suspected to be contaminated with mines and ERW,[86] and estimated that the 10 pilot projects developed so far would release 53km² in 2016.[87] In March 2016, the UNDP reported that the results of the pilot project to date show that continued application of this land release approach will greatly accelerate reduction and cancelation of SHA in BiH, and reduce costs.[88]

Land Release (Cluster Munition Remnants)

In 2015, a total of 0.23km² of cluster munition-contaminated area was released by clearance while 0.76km² was reduced by technical survey. A further 0.47km² was canceled by NTS. This represents a slight decrease compared to 2014, when 0.26km² was fully cleared, 1.07km² was reduced by technical survey, and 0.41km² was canceled by NTS. 

Survey in 2015 (cluster munition remnants)

In 2015, NTS of areas suspected to contain cluster munition remnants was conducted by BHMAC and NPA teams seconded to BHMAC regional offices.[89] In addition, BHMAC, the armed forces, the FACP, and NPA all conducted technical survey.[90]

During survey operations, 82 SHAs totaling just under 0.47km² of land were canceled by NTS while 0.76km² was reduced by technical survey. Eight SHAs were confirmed as contaminated, totaling 0.27km² (see the table below).[91]

Cluster munition remnants survey in 2015[92]

Note: * Includes survey support from NPA; TS = technical survey. 

Clearance in 2015 (cluster munition remnants)

In 2015, three operators cleared a total of 0.23km² containing cluster munition remnants, destroying 232 KB1 submunitions and 17 other items of UXO (see the table below).

Clearance of cluster munition-contaminated area in 2015[93]

During 2014, NPA implemented a pilot project using special detection dogs (SDDs) for technical survey and clearance of cluster munition-contaminated areas. According to NPA, the results of this project “gave important inputs for further definition of the process for using SDD in targeted TS in areas contaminated with cluster munition remnants.”[94] SOPs were subsequently drafted regarding the use of dogs in targeted technical survey over cluster munition-contaminated areas, which were awaiting BHMAC approval as of May 2016.[95] BHMAC was in the process of revising national standards to allow the use of dogs in targeted technical survey.[96]

Mine Ban Treaty Article 5 Compliance 

Under Article 5 of the Mine Ban Treaty (and in accordance with the 10-year extension request granted by States Parties in 2008), BiH is required to destroy all antipersonnel mines in mined areas under its jurisdiction or control as soon as possible, but not later than 1 March 2019. There is broad agreement in the BiH mine action community that BiH will not meet this deadline.[97]

In December 2015, BHMAC reported that releasing the remaining mined area by 2019 would largely depend on allocated funding, both local and international.[98] The Bosnian Minister of Civil Affairs warned in March 2016 that based on the current pace of demining, it would not be possible to implement the objectives set in the demining strategy by the deadline.[99]

Operationalization of BiH’s newly revised 2009–2019 strategy aims to ensure that all mine clearance operators adjust and conform to new land release methodology,[100] which is hoped will significantly increase land release output. In December 2015, BHMAC asserted that in the course of the next three years, around one-third of the remaining mine problem should be resolved.[101]

Mine clearance in 2011–2015[102]

In 2015, as in all the years since it was granted the 10-year extension to its initial Article 5 deadline, BiH fell far short of its land release targets and, according to the UNDP evaluation, at current rates of output, it may take several decades to clear BiH of mines.[103]

BHMAC reported that it would be able to provide a “more concrete” estimate of BiH’s ability to meet its Article 5 deadline after the 2015 strategy revision was completed.[104] However, in 2016, BHMAC reported that more detailed information about completion of clearance would be available at the end of 2017, after it had conducted the third revision of the mine action strategy.[105]

It is hoped that application of more efficient NTS and technical survey, as trialed in the EU Land Release pilot project, will help to determine more accurately the location and extent of actual contamination, and to release areas not contaminated. This methodology is the most time-efficient and cost-effective way to release mined areas.[106] Results of the pilot project so far show that: “By taking a large SHA (between 1 and 10km²) and applying rigorous and continual non-technical survey and technical survey, less than 1% of SHA had to be subjected to technical methods, resulting in huge savings in both time and cost on technical parts, which are always the most expensive activities.”[107]

In May 2016, BHMAC reported that analysis of the Mine Action Strategy 2009–2019, shows that BiH is currently 3.5 years behind in fulfilling its Article 5 obligations, due to lack of funding.[108]

A representative of the United States Department of State said that donor fatigue appears to be a large factor in BiH’s slow mine action progress, and argued that BiH requires financial resources from a larger pool of donors in order to achieve the targets outlined in its strategy.[109] The 2015 UNDP evaluation found that donors wanted to see more progress, were looking for an end date for assistance, and wanted more domestic responsibility. The slow pace of clearance has resulted in a lack of confidence in the mine action program from donors but also from people living in mine-affected communities, who felt disillusioned that the mines have not been cleared.[110]

Convention on Cluster Munitions Article 4 Compliance 

Under Article 4 of the Convention on Cluster Munitions, BiH is required to destroy all cluster munition remnants in areas under its jurisdiction or control as soon as possible, but not later than 1 March 2021. It is on track to meet this deadline. 

BHMAC has stated that it does not expect any obstacles in meeting its Article 4 deadline.[111] According to BHMAC, small-scale investments in equipment and training could significantly increase the capabilities of the FACP and the armed forces, and full use of available human and technical resources could enable BiH to meet its obligations under Article 4 by the end of 2017.[112] However, based on the status of current cluster munition remnants survey and clearance operations, BHMAC does not expect to meet its Article 4 obligations by the end of 2017.[113]

The 2012 Mine Action Strategy Revision had expected that BiH would “completely eliminate” all cluster munition-contaminated areas by 2015, a target that was missed.[114]

Five-year summary of cluster munition remnants clearance[115]

Note: * No cluster munition-contaminated area was cleared, but 59 submunitions from areas totaling 85,256m² were cleared during mine clearance operations.

The Monitor gratefully acknowledges the contributions of the Mine Action Review supported and published by Norwegian People’s Aid (NPA), which conducted mine action research in 2016 and shared it with the Monitor. The Monitor is responsible for the findings presented online and in its print publications.