Update 12 September 2023: 

Under Article 4 of the Convention on Cluster Munitions, Bosnia and Herzegovina (BiH) had an obligation to clear all areas contaminated with cluster munition remnants by 1 September 2023, in accordance with its second clearance deadline extension.[1] On 8 September 2023, BiH reported that it had completed clearance of all cluster munition contaminated areas under its jurisdiction or control. BiH made an official declaration on its full compliance with its Article 4 obligations during the convention’s Eleventh Meeting of States Parties, held in Geneva from 11–14 September 2023. BHMAC announced that between 2010 and 1 September 2023, BiH released a total of 14.61km² and destroyed 7,932 cluster munition remnants.[2]

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Treaty Status | Management & Coordination | Impact (contamination & casualties) | Addressing the Impact (land release, risk education, victim assistance)

Country summary

Twenty years after the end of the armed conflict in 1995, Bosnia and Herzegovina (BiH) remains the most heavily mined country in Europe. In the aftermath of the war, mine action was decentralized and a large number of organizations, commercial and non-commercial, have conducted demining operations. Better coordination and regulation of the mine action sector began with the creation of the Demining Commission of the Bosnia and Herzegovina Mine Action Center (BHMAC) in 2002.

BiH became a State Party to the Mine Ban Treaty in March 1999. It has since requested a 10-year extension in 2008, followed by a two-year interim extension in 2018 to carry out survey activities to better define the perimeter of areas contaminated by mines. In June 2020, BiH submitted another extension request, seeking an additional six years to complete mine clearance, until 1 March 2027.

BiH is also contaminated by cluster munition remnants, but on a smaller scale. BiH became a State Party to the Convention on Cluster Munitions in March 2011. In 2020, BiH submitted an 18-month extension request to complete clearance by 1 September 2022.[1]

Risk education in BiH is conducted as part of survey and clearance operations, and is also provided by the International Committee of the Red Cross (ICRC) and the Red Cross Society of BiH, which conducts risk education in schools and local communities. In 2019, a campaign was developed to provide risk education to cross-border migrants, with materials printed in five languages. BHMAC also employs emergency and permanent marking of minefields and suspected contaminated areas.[2]

BiH established a Mine Victim Assistance Coordination Body (MVACB) in 2018 to assist victims of mines and cluster munitions. While there is legislation in place to prohibit discrimination against persons with disabilities, non-governmental organizations (NGOs) report that the legislation is not effectively implemented.[3]

Treaty status

Treaty status overview

Management and coordination

Mine action management and coordination

Mine action management and coordination overview[4]

The Demining Commission, within the Ministry of Civil Affairs, supervises BHMAC and represents BiH in its relations with the international community on mine action.[5] It is responsible for setting mine action policy and proposes the appointment of senior BHMAC staff. 

Strategies and policies

Lack of progress in achieving the target of a mine-free BiH by 2019, as outlined in the National Mine Action Strategy 2009–2019, was attributed primarily to funding shortfalls,[6] the scale of the landmine problem in BiH, non-functional minefield records, and limiting climate conditions.[7]

The new National Mine Action Strategy 2018–2025 was developed in 2017 with support from the United Nations Development Programme (UNDP) and the Geneva International Centre for Humanitarian Demining (GICHD). The strategy was adopted in January 2019, and addresses all contamination in BiH including landmines and cluster munition remnants.

Two key strategic objectives of the strategy are to improve information management systems and gain a clearer picture of the extent of contamination.[8] Since March 2019, work has been ongoing to better define the precise perimeter of mined areas, and as a result, the objectives of the plan have been adjusted to reflect an expected completion date for mine clearance of 2027. 

Legislation and standards

In 2002, the Demining Law was adopted in BiH as a legal framework for all aspects of mine action. In 2017, a draft of amendments to the Demining Law was proposed and presented to the Council of Ministers, but has not yet been approved. As of July 2020, legislation proceedings related to the law in the Parliamentary Assembly of BiH were suspended.[9]

Three chapters of new National Mine Action Standards on land release, non-technical survey and technical survey were adopted in January 2016.[10]

BHMAC supervises and carries out quality control and quality assurance of operators based on the Standard Operating Procedures for Humanitarian Demining in BiH, and accredits operators in the mine action sector. BHMAC issues quality control certificate to operators as evidence that their activities are being undertaken in accordance with the national Demining Law and International Mine Action Standards (IMAS).[11] 

Information management

The first goal of the National Mine Action Strategy 2018–2025 is to ensure sound information management standards, tools, and processes in BiH.[12] The UNDP’s Mine Action Governance and Management Project, which began in 2017, aims to assist BiH’s mine action authorities to increase transparency, improve planning capabilities, and implement mine action standards.[13] As part of this, UNDP is supporting a project funded by the European Union (EU)[14] to improve information management through the development of an online database.[15] The database will use Information Management System for Mine Action (IMSMA) Core, adjusted to the specific needs of BHMAC.[16] However, up to April 2019, BHMAC was using its own information management system, the BiH Mine Action Information System (BHMAIS).[17] 

Gender and diversity

One of the strategic goals contained in the National Mine Action Strategy 2018–2025 is to ensure that the mine action program in BiH is gender sensitive and respects diversity.

Risk education management and coordination

Risk education management and coordination overview[18]

Coordination

BHMAC is responsible for the identification of target groups and prioritizing risk education. BiH reported that all risk education activities take gender and age into consideration.

BHMAC is also responsible for the accreditation of risk education operators in BiH, with licenses approved and signed by the Demining Commission. Monthly risk education reporting is included within the BHMAIS database.[19]

Organizations undertaking risk education hold regular meetings at the national level, though there is no formal coordination mechanism.[20]

Strategies and policies

A Mine Risk Education Sub-Strategy was in place for 2009–2019,[21] and a national risk education plan of action is included in the National Mine Action Strategy 2018–2025. 

National Standards and guidelines

Risk education is conducted in accordance with national Mine Risk Education Standards.[22] There is also an Accreditation Guide for Mine Risk Education Organizations working in BiH [23]

Victim assistance management and coordination

Victim assistance management and coordination overview[24]

Note: ERW=explosive remnants of war.

Strategies

The National Mine Action Strategy 2018–2025 has a specific victim assistance objective to ensure the equal participation of mine/ERW victims in society, identify and address the needs of victims, and promote opportunities through rights-based assistance which recognizes diversity.[25] 

Laws and policies

In 2019, several improvements were reported in mine/ERW regulations, including the Regulation on Pension and Disability Insurance, Regulation on Social Protection, and Regulation on Health Protection.[26] Government support for war veterans was prioritized in 2019.

Laws in BiH prohibit discrimination against disabled persons; yet discrimination in employment, social and health protection continued, while disability allowance payments were often delayed. 

Despite laws requiring increased accessibility to buildings for persons with disabilities, authorities rarely enforced these requirements. Human rights NGOs continued to report that many new public buildings continued to be built without being made accessible for persons with disabilities. NGOs also reported that the government did not effectively implement laws and programs advancing the rights of persons with disabilities in BiH.[27]

Impact

Contamination

Contamination overview[28]

Note: CHA=confirmed hazardous area; ERW=explosive remnants of war; SHA=suspected hazardous area.

BiH is massively contaminated with landmines and ERW, including cluster munition remnants primarily as a result of the 1992–1995 conflict related to the break-up of the former Yugoslavia.[29]

Landmine contamination

BiH is the most heavily mined country in Europe. Most contaminated areas are in the area between the Federation of Bosnia and Herzegovina (FBiH) and Republika Srpska (RS).[30]

Minefields in BiH generally contain relatively small numbers of landmines. A 2016 National Audit Office report on the efficiency of the demining system concluded that 20 years after the end of the war, BHMAC did not have complete information on the location of landmines.[31] In 2019, BiH had still not defined the full extent of mine contamination, although it has been undertaking a country assessment project since 2018, funded by the EU.[32] BHMAC reported that as of the end of 2019, around 70% of minefield locations had been mapped.[33]

In BiH’s revised Mine Ban Treaty Article 5 extension request of August 2020, contamination as of May 2020 was reported to be a total of 966.68km², of which 20.75km² are CHA and 945.93km are SHA.[34]

Cluster munition remnants contamination

In December 2019, BHMAC reported 2.31km² of cluster munition remnants contamination in nine locations.[35] This represented a reduction of 4.1km² from 6.3km² of total contamination reported in 2018.[36]

BiH stated at the Convention on Cluster Munitions Ninth Meeting of States Parties in 2019 that 3.6km² had been “separated” as “non-conventionally contaminated areas” following non-technical survey (NTS).[37] In its Article 7 report for 2019, BiH reported clearing only 0.7km² and did not provide information on the release of land suspected to contain cluster munition remnants by methods other than clearance.[38]

This indicates that BiH may have misinterpreted the definitions of the Convention on Cluster Munitions when calculating the area reduced, without formally declaring the area as released by survey in Article 7 reporting.[39]

BiH has not clarified if the area separated from recorded cluster munition contaminated areas is contaminated with unmodified KB-1 and/or KB-2 Dual-Purpose Improved Conventional Munitions (DPICM) scattered individually as single submunitions, or if these were locally-manufactured M93 rifle grenades with KB-1 and KB-2 cluster submunitions, modified in the production of the weapon. If the former, such contamination clearly constitutes cluster munition remnants, according to the definitions under Article 2 of the convention.[40] If the latter, it constitutes a different munition which is not covered by the convention.

Casualties

Casualties overview[41]

Note: ERW=explosive remnants of war.

Casualties in 2019: details

Although the six casualties in 2019 represented an increase from three in 2018, it remained similar to the seven casualties recorded in 2017. As a general trend, annual casualties have decreased since 12 were reported in 2016. Three casualties were reported in 2018, seven in 2017, and two were recorded in 2015. 

All casualties in 2019 were deminers. There were two registered demining accidents in which two deminers were killed and four were injured.

The first accident occurred in June 2019 near Gorazde, when two Mines Advisory Group (MAG) deminers were injured. In its Mine Ban Treaty Article 7 report for 2019, BiH reported this as a “mine” accident. However, BHMAC reporting the item as a rifle grenade, and thus ERW. In local terminology, rifle grenades are called “tromblonske mines,” which may sound like a type of mine. Some locally produced rifle grenades include cluster submunition components, but the specific type of item responsible for the accident was not reported.[42] The other accident occurred in August 2019 in Kupres, in which two deminers were killed and two injured. All were from the Association Pazi Mine. The accident was believed to have been caused by a PMR 3 antipersonnel stake mine.[43] 

BHMAC reported a total of 8,120 recorded mine/ERW casualties. Bosnia reported that during the war period (1992-1995) there were 6,354 casualties, while in the post-war period, there were 1,766 casualties, (617 people killed and 802 injured, and 347 unknown).[44] The total number of demining casualties recorded is 133, of which 53 were killed.[45]

Cluster munition casualties

No cluster munition casualties have been recorded in BiH since 2016, when a casualty from an unexploded KB-1 cluster submunition was reported.[46] Prior to the 2016 incident, the last recorded unexploded submunition casualties in BiH occurred in 2009.

BiH has reported 231 total cluster munition casualties as of 2019 (226 civilians and five deminers) of which 46 were killed and 185 injured. BiH reported that data on these casualties was incomplete.[47] However, discrepancies in reporting of cluster munition casualties occurred in a statement made by BiH in September 2019.[48] It was not reported how many were included in the general BHMAC mine/ERW casualty database, nor was it specified whether these included casualties from cluster munition attacks.[49] At least 86 casualties during cluster munition strikes in 1995 were identified.[50] 

Addressing the impact

Mine action

Operators and service providers

Clearance operators[51]

Note: NGO=non-governmental organization.

Clearance

Land release overview[52]

Note: ERW=explosive remnants of war.

Clearance of mine affected areas is behind target, but progress has been made due to the EU-funded country assessment project, which conducted NTS in all remaining suspected mined areas, and has resulted in an improved baseline of contamination that informed planning for BiH’s Mine Ban Treaty Article 5 extension request, submitted in 2020. However, land release in 2019 was delayed partly due to the six months taken to appoint members of the Demining Commission. The projected targets for cancellation and clearance during the interim request period were only partially met.

BiH has reduced the total amount of land thought to be contaminated by cluster munition remnants, must provide further explanation on land labeled as “non-conventionally contaminated” and whether this contamination falls under its Convention on Cluster Munitions clearance obligations.

Land release: landmines

In late 2019 and early 2020, land release operations in BiH faced delays after the expiration of the term of the Demining Commission in October 2019, followed by a delay in the appointment of new members until April 2020. During this time, operator accreditation was unable to take place, causing delays in the start of the demining season and deployment. In addition, there was a shortfall in expected financial resources compared to the projections in the National Mine Action Strategy, while the COVID-19 pandemic also resulted in reduced operations during March–June 2020.[53]

Between July 2018 and May 2020, BHMAC, the Armed Forces of BiH, and NPA conducted a “Country Assessment of SHAs in Bosnia and Herzegovina,” funded via European Commission emergency grants. The project surveyed 1,030km²of SHA and defined a total of 488 polygons.[54] The polygons were adjusted to the optimal size of between 1.7km² and 2.5km². The project aimed to increase the efficiency of mine action in BiH through the establishment of a realistic baseline of contamination. The survey was carried out by 14 NTS teams (nine from BHMAC, two from the Armed Forces of BiH and three from NPA). The project continued through 2020.[55]

In 2019, BiH reported clearance of 0.53km² of contaminated land and reduction of 3.3km² through technical survey.[56]

Land release: cluster munition remnants

BiH reported clearing 0.72km² of land contaminated by cluster munition remnants in 2019.[57] BiH did not submit a Convention on Cluster Munitions Article 7 report for calendar year 2018. BiH’s annual report on mine action, produced by BHMAC, stated that 0.28km² was cleared in 2018, and 1,009 submunitions were destroyed.[58] In 2019, BiH reported that a further 3.6km² was “separated” from the total contamination during NTS, as it is considered “non-conventionally contaminated.”[59] It was not reported to what extent previous clearance occurred in these areas.

Risk education

Operators and service providers

Risk education operators

Beneficiary numbers

Beneficiary numbers 2019[60]

BiH has not provided beneficiary data disaggregated by sex and age. A total of 36,295 people were reached through 11 risk education projects conducted in 2019. The projects were implemented by UM EUFOR, NPA and the Red Cross Society.

Implementation

Risk education in BiH is provided via public communication, education and community liaison activities. Several operators provide risk education integrated into survey and clearance activities. NPA risk education teams are fully integrated into their technical survey and clearance program.[61]

Risk education is conducted predominantly in rural areas, but also in urban areas (through targeting children with risk education messages) and at migrant camps. 

Red Cross Society (RCS) risk education instructors in BiH are trained and accredited by BHMAC, with financial and technical support from ICRC. These volunteers work at community level.[62]

Risk education is not a part of the formal school curriculum in BiH, but is included as an informal curriculum at primary level, with materials provided to teachers. RCS also conducts risk education in schools through their “Think Mines” project, that involves around 25,000 children and initiates competitions around safer behavior during a ‘‘risk education week’’ in December.[63] 

Risk education is conducted via mass media such as television and radio, and through social media channels. BHMAC is developing a mobile phone application on mine risk education with support from UNDP, but this had not yet been released as of June 2020.[64]

Target groups

A mine/ERW victim database, originally developed RCS and handed over to BHMAC in 2005, is available with updated information on mine victims, listed by community.[65] BHMAC reports that the target population is prioritized for risk education activities based on age, gender and cultural habits of those affected, and areas with the most contamination.[66] Incidents occur most frequently during the spring and autumn seasons, and among men in agricultural communities.[67]

Mine/ERW incidents primarily occur in forested areas, and most are caused by PROM‐1 bounding fragmentation mines.[68] Economically vulnerable populations are the most exposed to mine/ERW contamination, as they often knowingly enter contaminated areas, even if those areas are marked as being contaminated, for livelihood activities.[69]

Hunting and fishing are high-risk activities. The risk is often exacerbated by misplaced confidence on knowledge of the location of minefields. Other at-risk groups include farmers, firefighters (due to insufficient verification of the presence of mines/ERW at fire scenes), children (due to a lack of mine awareness and curiosity) and migrants (due to lack of mine awareness, lack of understanding or lack of adequate attention to marking signs and waring messages in contaminated areas).[70]

In 2019, BHMAC, in cooperation with the Border Police, NPA, ICRC and RCS, organized several meetings to develop risk education messages for cross-border migrants on the risk of mine/ERW contamination. Materials (banners, leaflets, and posters) were developed in five languages (Arabic, English, Farsi, Pashtu, and Urdu) for 10 locations. Mobile RCS teams disseminated leaflets.[71]

During 2019, two courses were held for risk education instructors, attended by 50 participants from various organizations working in the mine action sector.[72] 

Marking

BHMAC uses emergency marking and permanent marking in contaminated areas. In 2018–2019, 4,091 emergency marking signs were placed, while 1.26km² of SHA was permanently marked.[73] This included marking near migrant routes and at a migrant center. BHMAC reported placing 43 urgent marking signs around areas suspected to be contaminated by cluster munition remnants.[74]

Victim assistance

Victim assistance providers and activities

Victim assistance operators[75]

Major Developments in 2019

An EU-funded project, “Socio-economic empowerment of mine victims and their families through provision of business training and grants,” ended in 2019.[76]

A three-year project, “Integrated socio-economic support to landmine victims in BiH,” also funded by the EU and implemented jointly by World Vision and UDAS, continued to support 60 mine/ERW victims in 2019. UDAS also organized events with local authorities and disseminated brochures on peer-to-peer support and disability inclusive employment.[77] In 2019, a network of five support groups for women with disabilities was established within UDAS.[78] 

In terms of accessibility for mine/ERW survivors within the physical environment in BiH, an “e-administration” tool has been introduced for removing physical barriers.[79] UDAS conducted an assessment in 2019 on the physical accessibility of 20 schools and six public institutions in BiH.[80]

Needs assessment

BHMAC continues to update the BHMAIS database, and makes the data available for all interested parties.[81] It was not reported how the transition to IMSMA would influence information sharing.

Medical care and rehabilitation

BiH reported §that it possessed the required capacity in its health system to provide medical care to mine/ERW survivors, to the fullest extent needed.[82] 

Survivors are provided with services in clinical centers, hospitals, spas, and 63 community-based rehabilitation centers for mental and physical rehabilitation.[83] Local rehabilitation centers provide services such as making and fitting prostheses.[84] Although health insurance covers costs of basic prosthetic devices, there were differences in coverage based on the cause and type of disability.[85]

Many activities related to healthcare, physical rehabilitation services and economic inclusion were suspended in early 2020 amid the COVID-19 pandemic. UDAS has established support groups in many local communities to respond to the challenge posed by the pandemic.[86] Personnel from the community-based rehabilitation centers also assisted in training nine peer-to-peer support groups, including 63 mine survivors. [87]

Socio-economic and psychosocial inclusion

ASB continued to conduct income-generation projects. In 2019, 11 beneficiaries received livestock and greenhouses, while 31 mine/ERW survivors received agricultural equipment and tools.[88] The project ended at the end of 2019.[89] ITF Enhancing Human Security organized inclusive sports events in 2019.[90] Social assistance services are available throughout BiH, at both entity and canton level.[91]