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Evaluation of the Dutch Efforts to Control Landmines and Explosive Remnants of War 1996-2006

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Evaluation of the Dutch Efforts to Control Landmines and Explosive Remnants of War 1996-2006 IOB Evaluation | no. 323 IOB Evaluation | no. The Government of the Netherlands aims to control the use of landmines and explosive remnants of war (ERW) through an integrated approach, i.e. by applying both diplomatic and financial instruments. The Policy and Operations Evaluation Department (IOB) evaluated both these dimensions of the Dutch policy for the period 1996-2006. The report presents an extensive IOB Evaluation analysis of Dutch interventions in two negotiation arenas: the UN Convention on Certain Conventional Weapons and the Ottawa Convention on Landmines. The so-called ‘barrier model’ (Van der Eijk & Kok) is used as an analytical tool for the evaluation. The report furthermore presents the findings of the evaluation of the Dutch government’s financial assistance to humanitarian demining projects in three Preparing the ground for a safer world IOB Evaluations | no. 323 | may 2009 | Policy and Operations Evaluation Department | IOB Evaluations | no. 323 | may 2009 | Policy and Operations Evaluation Department IOB Evaluations | no. 323 | may 2009 | Policy and Operations Evaluation Department | IOB Evaluations | no. 323 | may 2009 | Policy and Operations Evaluation Department EvaluationEvidence of the fromDutch efforts developing to control landmines countries Preparing the ground for a safer world and explosive remnants of war 1996-2006 Vertalen Deze brochure is een uitgave van: Het ministerie van Buitenlandse Zaken Postbus 20061 | 2500 EB Den Haag t 0070 348 64 86 (ma t/m vrij 9.00 – 21.00 uur) © Buitenlandse Zaken | Juli 2009 |Publicatie-nr. bz-000198 IOB Evaluation Preparing the ground for a safer world Evaluation of the Dutch efforts to control landmines and explosive remnants of war 1996-2006 Preparing the ground for a safer world Preface The Dutch government aims to adopt an integrated approach to international issues, by combining policy instruments effectively and efficiently. The evaluation of the Dutch efforts to control landmines and explosive remnants of war (ERW) by the Policy and Operations Evaluation Department (IOB) looks into this integrated approach. The evaluation examined both the political and financial policy instruments and initiatives: the diplomatic efforts undertaken in the various arenas on conventional arms control to expand, tighten and enforce existing international legal instruments. This report is about Dutch diplomatic interventions in the conventional arms control arena from 1996 to 2006, in particular the United Nations Convention on Certain Conventional Weapons (CCW) and the Ottawa Convention. The last chapter deals with conclusions and lessons learned. A separate set of studies focuses on financial assistance, i.e. funds for mine clearance activities in countries with a mine problem, seen from the broad perspective of socio- economic reconstruction. These studies, commissioned by IOB and undertaken by 3 The Hague Centre for Strategic Studies, are available on the IOB website: www. minbuza.nl/iob.1 A short overview and appreciation of the financial assistance, based on these studies, can be found in chapter 8 of this report: ‘Humanitarian demining 1996-2006: three field studies’. Many people have contributed to this report. Dozens shared their knowledge and experience with the researchers and shed light on the complexities of arms control negotiations and demining operations in the field. In IOB Dr. Yvonne Kleistra, in close cooperation with Dr. Niels van Willigen of Leiden University, was responsible for the evaluation. IOB research assistant Michiel van Bokhorst was also member of the evaluation team. IOB colleagues Hans Slot and Ted Kliest were available for advice. As members of the reference group Professor Dr. J.J.C. Voorhoeve, Professor Dr. J.H. de Wilde, Maarten Lak (strategic adviser Ministry of Foreign Affairs) and Vincent van Zeijst (Security Policy Department of the same Ministry), provided valuable comments and advice. In the Hague Centre for Strategic Studies, Christa Meindersma was responsible for the evaluation of the financial assistance. It goes without saying that IOB bears the final responsibility for the report. Bram van Ojik Director Policy and Operations Evaluation Department 1 Evaluation of the Netherlands’ financial assistance for humanitarian demining activities in 1996-2006: Synthesis Report; Case studies: Republic of Angola, Bosnia & Herzegovina and Cambodia 4 Preparing the ground for a safer world Contents Preface 3 Boxes and tables 7 Acronyms and abbreviations 9 1 Introduction 12 1.1 Introduction 13 1.2 Purpose and research questions 14 1.3 Research approach 15 1.4 Evaluation criteria 18 1.5 Research method and scope of the research 21 1.6 A reader’s guide to this report 22 2 Landmines and explosive remnants of war 24 2.1 Introduction 25 5 2.2 The United Nations Convention on Certain Conventional Weapons (CCW) 25 Decision-making within the framework of the CCW 2.4 The Ottawa Convention 33 2.5 Decision-making within the framework of the Ottawa Convention 40 2.6 Summary of findings 43 3 Dutch policies on landmines and ERW 44 3.1 Introduction 45 3.2 International pressures and changing perspectives 46 3.3 Objectives, principles and instruments 48 3.4 Diplomacy 51 3.5 Funding 53 3.6 Organisation 60 4 Negotiating the CCW and its Protocols 62 4.1 Introduction 63 4.2 Establishing a compliance mechanism within the framework of the CCW 64 4.3 Universalising the CCW and its protocols 73 4.4 Expanding the restrictions on anti-vehicle mines 79 4.5 Extending the scope of the Convention 89 4.6 Conclusions 93 5 Negotiating on explosive remnants of war 96 5.1 Introduction 97 5.2 Qualification of the ERW as a CCW issue 98 Contents 5.3 Putting ERW on the CCW agenda 103 5.4 Towards a negotiating mandate 109 5.5 Towards Protocol V 115 5.6 Towards an effective Protocol V 121 5.7 Conclusions 125 6 Negotiating on anti-personnel mines 128 6.1 Introduction 129 6.2 Striving for a total ban on APMs 130 6.3 Conclusions 138 7 Universalising and implementing the Ottawa Convention 140 7.1 Introduction 141 7.2 Promoting universalisation 141 7.3 Promoting participation 147 7.4 Complying with the Ottawa Convention 152 7.5 Interpreting and implementing the Articles 1, 2 and 3 158 7.6 Supporting mine clearance 164 6 7.7 Promoting mine action technologies 170 7.8 Promoting stockpile destruction 175 7.9 Conclusions 180 8 Humanitarian demining 1996-2006: three field studies 184 8.1 Introduction 185 8.2 Findings of the field studies 185 8.2.1 Angola 185 8.2.2 Bosnia and Herzegovina 189 8.2.3 Cambodia 191 8.3 Overall findings 194 9 Assessing the effectiveness of the Dutch policies 198 9.1 Introduction 199 9.2 General approach towards the landmine problem 199 9.3 General performance in the two conventions 204 9.4 Selection and utilisation of intervention tools 212 9.5 Reflecting on failure and success 215 9.6 Conclusions 216 9.7 Lessons learned 218 Annexes 224 Annexe 1 About IOB 225 Annexe 2 Terms of reference 227 Annexe 3 Interviewed organisations 255 Annexe 4 References 257 Preparing the ground for a safer world Boxes and Tables Boxes Box 2.1 Major findings from the Landmine Monitor reports 1999-2004 39 Box 3.1 The HOM 2000 project 55 Box 3.2 Stipulations in the Ottawa Convention referring to the destruction of stockpiled anti-personnel mines and the provision of assistance for mine action compliance mechanism on the CCW agenda 56 Box 4.1 2006 Plan of Action to Promote the Universality of the CCW 77 Box 5.1 The ERW discussion mandate as submitted by the FoC during the 2001 Review Conference 106 Box 5.2 Summary of Protocol V to the CCW Treaty 116 Box 7.1 Non-paper of the co-chairs of the SC GSO on suggested conclusions pertaining the interpretation and implementation of Articles 1, 2 and 3 163 7 Tables Table 1.1 The three dimensions of scope related to intervention instruments 20 Table 1.2 Four criteria to assess the effectiveness of the Dutch interventions 21 Table 3.1 Share of the Netherlands in international mine action funding 50 Table 3.2 Dutch support to multilateral mine clearance operations 1992-1995 54 Table 4.1 Dutch policies on compliance 1995/1996-2001 Putting the establishment of a compliance mechanism on the CCW agenda 65 Table 4.2 Dutch policies on compliance 2001-2006: Consultations on a compliance mechanism 68 Table 4.3 Promoting universality of the Convention 74 Table 4.4 Dutch policies on AVMs 1995/1996-2001: Getting further restriction on AVMs onto the CCW agenda 80 Table 4.5 Dutch policies on AVMs 2001-2006: Consultations on AVMs in the GGE 84 Table 4.6 Dutch policies on scope 1995/1996-2001: continued negotiations on the scope of application of the CCW 90 Table 5.1 Dutch policy on ERW September 2000 – December 2000: Qualification of the ERW as a CCW issue 98 Table 5.2 Dutch policy on ERW December 2000 – December 2001: Putting ERW on the CCW agenda 102 Boxes and Tables Table 5.3 Dutch policies on ERW December 2001 – December 2002: Towards a negotiating mandate 109 Table 5.4 Dutch policies on ERW December 2002 – November 2003: Towards a Protocol 115 Table 5.5 Dutch policies on ERW November 2003 – December 2006: Towards an effective Protocol 121 Table 6.1 Dutch policy on APMs May 1996 – December 1997: Striving for a total ban 130 Table 7.1 List of states not parties to the Ottawa Convention 142 Table 7.2 Dutch policies on universalisation December 1997 – December 2006 142 Table 7.3 Dutch policies on participation December 1997 – December 2006 148 Table 7.4 Dutch policies on compliance December 1997 – December 2006 154 Table 7.5 Dutch policies on the Articles 1, 2 and
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