Palestine

2008 Key Data

Ten-Year Summary

The Palestinian National Authority (PA) participated as an observer at the First Meeting of States Parties to the Mine Ban Treaty in May 1999, calling for a “Middle East free of mines.” In April 2000, the PA stated its strong support for, and desire to join, the Mine Ban Treaty. It did not participate in another international landmine-related meeting until May 2009, and has not made any recent public statements regarding its mine ban policy. Hamas is alleged to have used mine-like explosive booby-traps in Gaza during the fighting in December 2008–January 2009. There were earlier allegations of armed Palestinian groups using mines and improvised explosive devices (IED).

Operation Cast Lead, Israel’s attack on Gaza in December 2008 to January 2009, has added to the explosive remnants of war (ERW) problem in the Occupied Palestinian Territories (OPT). There has been little clearance of mines and ERW over the past few years, although the UN Mine Action Team in Gaza has been trying to address contamination resulting from the latest conflict.

Between 1999 and 2008, Landmine Monitor identified at least 794 casualties from mines, ERW, and victim-activated IEDs in the OPT (127 killed, 654 injured, and 13 unknown). From 1999 to 2008, mine/ERW risk education activities have been provided in the West Bank and Gaza mainly through school-based activities and public information dissemination. After Operation Cast Lead, specific emergency risk education activities were carried out. There have been no specific mine/ERW victim assistance activities in the OPT. Access to health services continued to deteriorate, particularly in Gaza, in 2008–2009. Disability legislation remains inadequate and the quality of services poor.

Mine Ban Policy

Governance of the Occupied Palestinian Territories, including Gaza and parts of the West Bank, is assigned to the Palestinian National Authority. Two Palestinian factions, Hamas in Gaza and Fatah in the West Bank, both claim to be the legitimate governing authority of the OPT. Neither faction has made any recent public statements on its policy toward banning antipersonnel mines. The PA-Fatah sent a representative to the May 2009 intersessional Standing Committee meetings in Geneva, its first participation in Mine Ban Treaty-related meetings since the First Meeting of States Parties in Mozambique in May 1999.

Use, transfer, and stockpiling

In December 2008, Israel launched 23 days of intense military operations in Gaza.^[1] According to one New York Times report, Hamas fighters used victim-activated explosive booby-traps against Israeli forces.^[2] Use of such booby-traps is prohibited by the Mine Ban Treaty. Landmine Monitor did not find any other serious allegations of use of antipersonnel mines or mine-like devices by any Palestinian entity during this reporting period (since May 2008).^[3]

In May 2009, Egyptian authorities seized 48 antipersonnel mines, among other weapons, allegedly destined for Palestinian groups in Gaza.^[4] In February 2009, Hamas displayed antivehicle mines in its possession after the end of the conflict, but the source of the weapons is unknown.^[5]

Scope of the Problem

Contamination

The OPT are contaminated with mines and ERW, although the precise extent of contamination is not known. There are believed to be at least 15 confirmed minefields, all located in the West Bank on the border with Jordan. It has been suspected that mines have also been laid by Israeli forces on the border between Egypt and Gaza and in various areas across the Gaza Strip.^[6]

Further hazards exist as a result of the attacks by the Israeli Defense Forces (IDF) from 27 December 2008 to 18 January 2009 during Operation Cast Lead, when the Gaza Strip was bombed by sea, air, and land. Before and during the 23 days of operations, Hamas and other Palestinian militant groups fired rockets from Gaza into southern Israel, and engaged the IDF in ground combat.^[7] The existence of UXO in the Gaza Strip hinders reconstruction. Israeli forces reportedly used antivehicle mines to demolish buildings in Gaza, but there is no evidence that antipersonnel mines were laid by either side. The main threat is from a wide variety of UXO.^[8]

In April 2009, the UN Mine Action Service’s (UNMAS) Mine Action Team (UNMAT) in Gaza initiated assessments to identify the locations of ordnance; these were still underway as of 1 July 2009. Based on preliminary results, however, it appears that urban centers were the most heavily damaged by explosive ordnance. The core remaining UXO threat lies within the ruins of collapsed and damaged buildings.^[9] As of early June 2009, of the 215 buildings assessed, just under half were categorized as having a high or medium risk of UXO contamination, thereby necessitating explosive ordinance disposal (EOD) follow-up.^[10]

Casualties

In 2008, Landmine Monitor identified at least 16 new mine/ERW casualties, including eight killed and eight injured in 14 incidents.^[11] The majority of casualties were men (10) and boys aged 13 to 16 (four); the age and gender of the remaining two is unknown. The most common activities at the time of the incident were herding (five) and tampering with explosive devices (four). ERW caused the majority of casualties (seven), and mines five (four were caused by unknown devices). Ten casualties were identified in the West Bank and six in Gaza.

The 2008 casualty rate is a significant decrease compared to 2007 (94) and 2006 (34),^[12] but this is due to a lack of available data.

Casualties continued to occur in 2009, but sources provided conflicting information. Landmine Monitor was able to confirm 21 mine/ERW casualties (six killed and 15 injured) in six incidents, as of 31 May 2009.^[13] All but three of these casualties were recorded in Gaza after Operation Cast Lead ended on 18 January 2009. Eight casualties were children. The majority of casualties were caused by ERW (18), while mines caused three casualties.

Data from the Ministry of Health reported 30 ERW casualties, including seven killed and 23 injured, in Gaza between January and April 2009.^[14] UNICEF reported at least 35 casualties (11 killed and 24 injured) in Gaza between 18 January and 2 June 2009. As of early July 2009, casualty data was in the process of being checked, and no more details were available.^[15]

The total number of Palestinian casualties from mines, ERW, and victim-activated IEDs is not known, and data varies depending on the source. Between 1999 and 2008, Landmine Monitor identified at least 794 casualties (127 killed, 654 injured, and 13 unknown).^[16] Defense for Children International Palestine Section (DCI/PS) recorded more than 2,500 mine/ERW casualties occurring between 1967 and 1998.^[17]

Risk profile

According to Landmine Monitor analysis of 2008 casualty data, the majority of recorded casualties were children and men tampering/playing with explosive devices and conducting livelihood activities. Both an Israeli official and a Palestinian official reported that scrap metal collection has increased in the OPT.^[18] In 2009, following Operation Cast Lead in Gaza, those involved in rubble removal, farmers, and residents of contaminated areas are believed to be most at risk,^[19] as well as humanitarian aid workers.^[20]

Program Management and Coordination

The interministerial Palestinian Mine Action Committee (PNMAC) was established in 2002 and has been chaired by the PA Ministry of the Interior since 2006. It meets irregularly because of the lack of resources to implement activities and was reported to be suspended in August 2008.^[21] There is no information regarding PNMAC activity within Gaza. The Ministry of Interior within Gaza has a Director of Mine Action, but UNMAT has not been able to establish contact.^[22] UNMAT Gaza has not been involved in any activities in the West Bank, or with the PA. ^[23]

It is unclear who has the final mandate to coordinate and monitor risk education (RE) and victim assistance (VA) activities.^[24] PNMAC does not have a formal mandate,^[25] and in 2008 its coordination role remained limited.^[26] In 2009, following Operation Cast Lead, UNICEF took a de facto coordination role for RE.^[27] The first RE coordination meeting was held in Gaza on 27 April 2009.^[28] One of the main recommendations of a 2005 UNDP assessment was the development of a comprehensive mine action strategy, including victim assistance and data collection.^[29] However, the recommendation has not been implemented, and in 2008 victim assistance was not on PNMAC’s agenda. ^[30]

There is no specific VA strategic framework in place in the OPT, and mine/ERW survivors receive the same services as other persons with disabilities.^[31] The Ministry of Health and the Ministry of Social Affairs are responsible for disability issues.^[32]

Data collection and management

There is no comprehensive data collection mechanism in the OPT, and it is not clear who has the final responsibility to collect casualty information.^[33] Data is collected by the Ministry of Health, the Ministry of Interior, the Palestinian Red Crescent Society (PRCS), the Palestinian Police, and some international and local organizations.^[34]

In 2005, the PRCS designed a casualty database.^[35] In June 2009, it reported that the database was still running, but casualty details were not made available to Landmine Monitor.^[36] In 2009, Mines Advisory Group (MAG) reported that casualty data collection in Gaza “has been difficult and ad hoc” and that it was undertaking visits to hospitals in Gaza to collect information.^[37] UNICEF reported that it was attempting to harmonize data from different actors in Gaza.^[38]

Plans and national ownership

Mine action is not a priority for the PA and is not mentioned in its Reform and Development Plan.^[39] On 23 January 2009, UNMAS entered Gaza to conduct a technical assessment mission and begin establishing a mine action project in response to contamination resulting from Operation Cast Lead. Two offices were set up, one in Gaza and the other in Jerusalem.^[40]

Demining and Battle area Clearance

Palestinian police EOD teams are the only Palestinian body engaged in clearance operations in the OPT. The extent of any clearance has not been reported. The IDF has also cleared mines and UXO on an emergency basis in some parts of the OPT. Cooperation between Palestinian EOD teams and the IDF has generally been limited.^[41]

Through 15 May 2009, UNMAT in Gaza had surveyed and cleared all known contaminated schools in Gaza (38 UNICEF-supported government schools and four UN Relief and Works Agency for Palestine Refugees in the Near East schools). UNMAT identified 197 items of UXO (56 containing white phosphorous and 141 containing high explosives).^[42]

MAG has been the key implementing partner for UNMAT,^[43] while Norwegian People’s Aid (NPA) also operated briefly in Gaza between March and May 2009.^[44] Five MAG EOD teams removed and rendered safe UXO across the Gaza Strip, and conducted assessments in support of the operations of humanitarian and development organizations.^[45] As of June 2009, MAG had not yet carried out demolitions in Gaza as it was still identifying a demolitions site and arranging for explosives and other equipment to be imported.^[46]

Risk Education

In 2008, mine/ERW RE, combined with activities raising awareness of the danger of small arms and light weapons (SALW), was provided by the Ministry of Education and Higher Education (MoEHE) with UNICEF support in both the West Bank and Gaza.^[47] At the beginning of 2009, following Operation Cast Lead in Gaza, emergency RE was provided by an increased number of operators. As Gaza is densely populated, the ERW threat was considered “acute.”^[48]

In 2008, RE/SALW awareness messages reached approximately 150,000 people, including 100,000 children and 50,000 adults. This is a decrease compared to 2007 (when 256,677 were reached), but it remains higher than in 2006 (when 81,892 were reached). In total, 538 teachers, Scout leaders, and counselors were trained in RE, as well as 56 trainers from the MoEHE. RE sessions were given in 132 schools, messages were broadcast on school radio, and posters designed by children were displayed. Awareness sessions were also given to parents at 124 events/exhibitions. These activities were conducted in high-risk areas in the West Bank (Hebron, Jenin, Nablus, Qalqilia Tubas, and Tulkarem) and the Gaza Strip (Gaza Middle Area, Khan Younis, Northern Gaza, Rafah, Gaza Middle Area, and Gaza City) due to their proximity to military bases/training zones, settlements, or minefields.^[49]

In 2009, additional operators provided emergency RE. UNICEF continued to provide financial and technical support.^[50] World Vision distributed emergency supply kits that contained an RE brochure.^[51] Save the Children distributed family hygiene kits with a child-friendly flier.^[52] UNMAT/MAG conducted UXO/Safety Awareness Briefings for humanitarian workers.^[53] The Palestinian Center for Democracy and Conflict Resolution (PCDCR) provided awareness messages through TV and radio, and conducted community and school-based activities.^[54] The MoEHE continued to provide school-based RE covering an additional 72 schools in affected areas.^[55] The IDF issued a warning on the ERW threat to Gazan residents, which was relayed in Palestinian and other Arabic language media.^[56] As of April 2009, gaps that remained to be addressed included the limited capacity to conduct community liaison activities and to provide awareness of threats posed by UXO during rubble removal.^[57]

The ICRC held safety presentations for PRCS field teams and firefighters, as well as a basic mine action training course for 27 PRCS volunteers. The ICRC and PRCS designed and distributed 10,000 leaflets with RE messages.^[58]

Despite variable security situations, mobility restrictions, and the absence of a formal RE framework, awareness messages have been delivered without interruptions from 1999 to 2008 by different operators. Technical and financial support has been provided by UNICEF and the ICRC.^[59] In 2005, a UNDP mission concluded that given the situation in the OPT, remarkable achievements had been attained in raising awareness about mines among children, but that there was a great need to address the ERW threat.^[60]

Victim Assistance

The estimated number of survivors is unknown but at least 654. Access to health services in the OPT, particularly Gaza, continued to worsen in 2008 due to health personnel strikes, mobility restrictions, and power cuts.^[61] The situation further deteriorated in 2009 due to Operation Cast Lead. At the end of the conflict, ICRC doctors reported that surgeons, burn doctors, and rehabilitation specialists were needed, and that the medical facilities in Gaza were not adequate to respond to healthcare needs.^[62] The PA also reported that the health system was not able to cope with demand.^[63]

Handicap International (HI) estimates the number of persons with disabilities has now increased to 15% of the population, due to ongoing conflict.^[64] While there are several physical rehabilitation centers and programs to address the needs of persons with disabilities,^[65] the quality of services was a problem, and the main providers have remained NGOs.^[66] PA health insurance services were poor, and Palestinians injured by Israeli forces were not entitled to insurance or compensation in Israel.^[67]

In 2008, the ICRC supported the Artificial Limb and Polio Center (ALPC) in Gaza City by donating material, components, physiotherapy equipment, and wheelchairs. They also renovated the center and provided training. The ICRC also supported the Al Shifa Hospital in Gaza in provision of post-surgical rehabilitation and in March 2008 organized a war surgery seminar.^[68]

The PRCS continued to provide a wide range of center and community-based services.^[69] It provided emergency medical services and ensured the transport of injured and sick, with ICRC financial support.^[70] HI continued to support local organizations providing services for persons with disabilities through rehabilitation outreach teams; it also supported the ALPC during Operation Cast Lead.^[71]

In 2009, the Slovenian government earmarked €146,000 (US$215,000) for rehabilitation of children in Gaza through the International Trust Fund for Demining and Mine Victims Assistance (ITF),^[72] to undertake medical evaluation and provide assistance to 25 mine/ERW survivors in Gaza.^[73]

There is legislation to protect the rights of persons with disabilities, but it is not rights-based and remains largely unimplemented. Discrimination against persons with disabilities has been reported.^[74]

Support for Mine Action

International support for mine action

Canada reported contributing C$4,000,000 ($3,752,400) in 2008 to UNDP for UXO clearance in Gaza.^[75] The UN reported receiving $137,676 from the Netherlands, $582,401 from the European Commission, and $623,524 from the United Kingdom. The Swedish International Development Agency provided an in-kind contribution of 3 staff (one medic and two EOD technicians).^[76] No international mine/ERW action funding was reported for the OPT in 2007.