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Finland
Mine Ban Policy
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Mine Ban Treaty status |
Not a State Party; has stated intention to accede in 2012 |
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Pro-mine ban UNGA voting record |
Voted in favor of UNGA Resolution 65/48 in December 2010, as in all previous years |
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Participation in Mine Ban Treaty meetings |
Attended as an observer the Tenth Meeting of States Parties in Geneva in November–December 2010 and the intersessional meetings in Geneva in June 2011 |
Policy
In 2010 and 2011, Republic of Finland made progress towards meeting its stated goal of acceding to the Mine Ban Treaty in 2012. In September 2004, Finland announced that it would join the treaty in 2012, six years later than its previously stated goal, and would destroy its mine stockpiles by 2016.[1]
On 12 August 2011, the President of Finland decided to submit to Parliament a government proposal on Finland’s accession to the Mine Ban Treaty.[2] On 6 September 2011, the Parliament decided to send the document, which contains draft national implementation legislation, to the Foreign Affairs Committee and at the same time, ordered the Defense Committee to issue its opinion on the proposal to the Foreign Affairs Committee.[3] Members of Parliament from the Green Party, the Left Alliance, the National Coalition Party, and the Social Democrats supported Finland’s decision to join the treaty. The True Finns Party, however, called the decision to join “a mistake” and called for it to be reconsidered.[4] The True Finns Party was the only political party to oppose Finland’s accession to the treaty.[5]
On 28 September 2011, the Defense Committee issued its opinion in favor of the proposal, with one dissenting opinion from the True Finns Party.[6] The Defense Committee stated that banning antipersonnel mines was justified on the basis of the significant human rights and humanitarian problems caused by their use and stated that accession to the Mine Ban Treaty would strengthen Finland’s foreign and security policy coherence. The Defense Committee concluded that a total of approximately €300 million (US$398 million) would allow adequate substitutions for antipersonnel mines to be procured and that it would be possible to remove these weapons without weakening Finland’s national defense.[7]
In December 2010, the President and Cabinet Committee on Foreign and Security Policy met to discuss Finland’s accession to the treaty and initiated preparation for accession in 2012.[8] In the same month, the Ministry for Foreign Affairs issued a background document on the treaty to be considered by Parliament as Finland’s official instrument of accession and national implementation legislation.[9] This document was the basis of the government proposal sent to Parliament in August 2011.
According to the Ministry for Foreign Affairs, the process to join the treaty has been slowed down by the crucial role antipersonnel mines have played in Finnish defense doctrine. Planned and controlled use of mines has been more important for Finland than many other European countries, it said.[10]
In November–December 2010, Finland attended the Tenth Meeting of States Parties to the Mine Ban Treaty in Geneva as an observer, where it reported that national constitutional measures were underway for accession and stated that an interagency working group was finalizing the government bill to be presented to Parliament in spring 2011. Finland noted its funding contribution to humanitarian mine action of €5 million ($6.6 million) in 2010 and pledged to increase its mine action funding, subject to parliamentary approval, to reach the level of €6 million ($8 million) annually by 2014.[11] Finland also attended as an observer the intersessional Standing Committee meetings of the treaty in Geneva in June 2011, where it reaffirmed its commitment to completing ratification by 2012 and pledged that the government proposal would be submitted to Parliament “promptly after the summer break” to ensure completion of the process in 2012.[12]
Finland is party to the Convention on Conventional Weapons (CCW) and its Amended Protocol II on landmines. It is also party to CCW Protocol V on explosive remnants of war.
Use, production, transfer, and stockpiling
In December 2010, the Ministry for Foreign Affairs confirmed that Finland does not have any mined areas, has not produced antipersonnel mines since 1981, and has never exported antipersonnel mines.[13] Finland has not acquired any antipersonnel mines since the early 1970s. A European Union Joint Action obliges Finland not to procure more antipersonnel mines.[14]
In December 2010, information from the Ministry for Defense was released revealing for the first time the size and composition of Finland’s stockpile of antipersonnel mines.[15] As of August 2011, Finland stockpiled 1,029,763 antipersonnel mines banned by the treaty, comprising of 801,618 Sakaramiina 65-98 blast mines and 228,145 Putkimiina 43-95 and Putkimiina 65-98 stake mines.[16]
The Defense Force has stated that Finland will complete the destruction of its antipersonnel mines within four years, as stipulated by the treaty. Destruction is scheduled to commence in late 2012.[17] Blast mines are to be destroyed by removing the fuze and metallic parts for recycling, with parts to be used during fire and explosion training. Stake mines are to be destroyed by open detonation.[18]
Procuring alternatives to antipersonnel mines has been a key reason Finland has cited as hindering its accession to the treaty.[19] According to the Ministry for Foreign Affairs, a replacement for antipersonnel mines must be procured between 2009 and 2016 in order to maintain a credible defense.[20] The procurement of replacement systems started in 2009.[21] Finland’s 2009 Security and Defense Policy Review stated that “it is possible to replace a part of the landmines’ purpose with special munitions, Claymore mines and ground surveillance sensors as well as modern anti-tank mines.”[22]
In the past, the Finnish Defense Force suggested replacing mines in part with cluster munitions. In June 2008, a Finnish diplomat confirmed that the option of replacement with cluster munitions was still being considered.[23] In March 2010, however, an advisor in the Ministry of Defense stated that the ministry was now looking for different alternatives, and said that Finnish media had oversimplified the issue of replacing antipersonnel mines with cluster munitions. He also noted that the Convention on Cluster Munitions will affect the availability of cluster munitions on the market.[24]
According to the Ministry for Foreign Affairs, stockpile destruction is expected to cost approximately €220,000 ($291,742), with the additional cost of procuring a replacement system, estimated at €200 million ($265 million).[25]
Retention
Finland has indicated it will retain 16,500 antipersonnel mines for training and research purposes over the next 20 years.[26] Finland has stated that it considers retention of mines necessary for the development of and training in destruction techniques for mines used in areas near Finland or where Finland is operating in crisis management.[27] The ICBL has expressed serious concern at the retention of such a large number of antipersonnel mines and stated that such a number could be considered a stockpile.
Contamination from explosive remnants of war
Finland has stated that it does not have mined areas. However, according to the Ministry for Foreign Affairs, some areas may contain unexploded ordnance (UXO), which could include mines, left from World War II. These areas with a risk of UXO are recorded.[28]
[1] The decision to step back from Finland’s long-stated goal to join the treaty in 2006 was included in the Security and Defense Policy Review 2004, which was approved by parliament on 21 December 2004. The goal of joining the treaty by 2006 was first stated in December 1997, reiterated in December 1999 and December 2000, and confirmed by a government report on foreign and security policy approved by parliament in December 2001.
[2] Ministry for Foreign Affairs, “Foreign Minister Erkki Tuomioja: Ottawa Mines Convention a great victory for civic engagement,” Press release 193/2011, 12 August 2011, formin.finland.fi.
[3]Parliament of Finland, “Asian käsittelyvaiheet,” (“Procedural Steps”), HE 15/2011 vp, www.eduskunta.fi/valtiopaivaasiat/he+15/2011; and Parliament of Finland, “Hallituksen esitys Eduskunnalle jalkaväkimiinojen käytön, varastoinnin, tuotannon ja siirron kieltämisestä ja niiden hävittämisestä tehdyn yleissopimuksen hyväksymisestä ja laiksi sopimuksen lainsäädännön alaan kuuluvien määräysten voimaansaattamisesta ja sopimuksen soveltamisesta sekä eräiksi siihen liittyviksi laeiksi” (“Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction”), HE15/2011, 12 August 2011. The draft legislation proposes penal sanctions for violations of a minimum of four months imprisonment to a maximum of six years.
[4] “Miinoista luopuminen herättää toiva – tai kauhua” (“Abandonment of mines gives us hope – or horror?”) Pax Magazine, Issue 3/2011, www.pax.fi. The True Finns Minister of Parliament, Jussi Niinistö, Chair of the Parliament’s Defense Committee, called the decision “political” and one “which makes neither military nor financial sense.” Calling antipersonnel mines a “crucial part of Finland’s defense capability,” he said that “replacing them is, instead, costly and may not even be entirely possible.” “Finland moves to ban anti-personnel mines,” Helsinki Times, 17 August 2011, www.helsinkitimes.fi.
[5] ICBL meeting with Tarja Pesamaa, Disarmament Counselor, Permanent Mission of Finland to the UN in Geneva, Geneva, 21 June 2011.
[6] The Defense Committee heard from the Minister of Defense and representatives from the Ministry of Defense, Foreign Affairs, branches of the military, the Red Cross, and civil society, including ICBL member the Peace Union of Finland. Parliament of Finland, “The Defence Committee’s opinion 2/2011 vp,” PuVL/2011 vp – HE 15/2011 vp, 28 September 2011, on “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011, www.eduskunta.fi.
[7] Ibid. Average exchange rate for 2010: €1=US$1.3261. US Federal Reserve, “List of Exchange Rates (Annual),” 6 January 2011.
[8] Ministry for Foreign Affairs, Government Communications Unit, “Cabinet Committee on Foreign and Security Policy discussed anti-personnel mines and cluster munitions,” Press release no. 358/2010, 3 December 2010.
[9] Ministry for Foreign Affairs, Department of Politics, “Luonnos hallituksen esitykseksi eduskunnalle jalkaväkimiinoja koskevan Ottawan sopimuksen hyväksymisestä” (“Draft Government Bill to Parliament on the approval of the Ottawa Convention on Antipersonnel Mines”), 14 December 2010.
[10] Parliament of Finland, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011; and Ministry for Foreign Affairs, Department of Politics, “Draft Government Bill to Parliament on the approval of the Ottawa Convention on Antipersonnel Mines,” 14 December 2010.
[11] Statement of Finland, Tenth Meeting of States Parties, Mine Ban Treaty, Geneva, 29 November 2010. Average exchange rate for 2010: €1=US$1.3261. US Federal Reserve, “List of Exchange Rates (Annual),” 6 January 2011.
[12] Statement of Finland, Standing Committee on General Status and Operation, Mine Ban Treaty, Geneva, 20 June 2011.
[13] Ministry for Foreign Affairs, “Draft Government Bill to Parliament on the approval of the Ottawa Convention on Antipersonnel Mines,” 14 December 2010; and Parliament of Finalnd, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011.
[14] Ministry of Defense, “Puolustusministeriön Jalkaväkimiinaselvitystyöryhmän Väliraportti” (“Interim report of Ministry of Defense working group on infantry landmines”), 19 December 2003, published 10 February 2004, www.defmin.fi.
[15] Ministry for Foreign Affairs, “Draft Government Bill to Parliament on the approval of the Ottawa Convention on Antipersonnel Mines,” 14 December 2010; and Parliament of Finland, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011.
[16] Parliament of Finland, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011; and Ministry for Foreign Affairs, “Draft Government Bill to Parliament on the approval of the Ottawa Convention on Antipersonnel Mines,” 14 December 2010.
[17] Parliament of Finalnd, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011.
[18] Ibid.
[19] See Landmine Monitor Report 2007, p. 821. The Security and Defense Policy Review 2004 stated that the Finnish Defense Force would be provided with €200 million in extra funding over eight years for replacements for mines, and the army would have to allocate an additional €100 million. The replacement process was to start in 2009 and continue until 2016. The review proposed to replace antipersonnel mines with close combat weapons and sensors.
[20] Parliament of Finland, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011.
[21] Ibid.
[22] Prime Minister’s Office, “Finnish Security and Defence Policy 2009, Government Report,” Publication 13/2009, 5 February 2009, www.vnk.fi.
[23] Interview with Amb. Kari Kahiluoto, Permanent Mission of Finland, Geneva, 4 June 2008.
[24] Telephone interview with Pentti Olin, Advisor, Ministry of Defense, 22 March 2010.
[25] Parliament of Finland, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011. Average exchange rate for 2010: €1=US$1.3261. US Federal Reserve, “List of Exchange Rates (Annual),” 6 January 2011.
[26] Ibid. The numbers retained are as follows: 9,000 Sakaramiina 65-98; 3,000 Putkimiina 43-95; and 4,500 Putkimiina 68-98.
[27] Parliament of Finland, “Government Bill to Parliament on the approval of the Convention on the Prohibition of the Use, Production, Stockpiling, and Transfer of Antipersonnel Mines and their Destruction,” HE15/2011, 12 August 2011.
[28] Ibid.
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