by Laura McConnell
Research Analyst, The Public Policy Research Initiative
On December 3rd, 1997, Canada became the first nation to sign the Convention on the Prohibition of the Use, Stockpiling, Production and Transfer of Anti-personnel Mines and on their Destruction, also known as the Ottawa Treaty. Analyzing the efforts required in gaining the signatures of more than 150 nations to the Ottawa Treaty and the global impact it has had over the past decade is an insightful historical exercise, as well as a reflection on Canada’s international leadership potential. Fundamentally, the Ottawa Treaty demonstrated three important aspects of global relations to the world: that international norms can be changed in a relatively short period of time, that Canada can succeed in exercising its global influence, and that the signature of the United States is not necessary to effect global change through diplomacy (Cottrell, 2009).
Prior to 1997, the usage of land mines was militarily acceptable as a defensive strategy, in order to lessen the actual hand-to-hand combat (Cottrell, 2009). Shifting the norm from the belief in the military necessity of landmines, to proving that landmines are the cause of an international humanitarian crisis was no easy task. Nevertheless, this process was significantly aided by the International Committee of the Red Cross’ 1996 report “Anti-personnel Landmines – Friend or Foe?”, which quoted leading military professionals in concluding that anti-personnel landmines have “little or no effect on the outcome of hostilities”. Nongovernmental organizations played an influential role in bringing attention to and advocating on behalf of the urgent need to ban anti-personnel land mines. A collection of six NGOs formed the International Campaign to Ban Landmines in 1992, which not only advocates the eradication of landmines, but also produces a yearly report assessing the progress of the world’s nations in becoming landmine-free. Their 2009 report claims that the global stigmatization of landmines has been one of the most significant achievements of the Ottawa Treaty (International Campaign to Ban Landmines).
When the world’s nations met in October 1996, there were divisions between those who believed that an outright ban on anti-personnel landmines was the only effective solution, and those who were content with the status quo by regulating their usage (Cottrell, 2009). Convinced of the urgency of the matter, Canadian Foreign Minister Lloyd Axworthy proclaimed Canada’s commitment to create a treaty that would implement a complete ban on anti-personnel landmines, despite critics arguing that pushing for a total ban too quickly could weaken consensus (Cottrell). Banning anti-personnel landmines was a challenge that the world ultimately accepted, and its success has been called the “Ottawa Process” by some academics. This process involved circumventing traditional arms control efforts such as UN forums or review processes, and allowing Canada to lead the push in the formation of a new global norm using the “fast-track” approach of multilateral conferences (Cottrell).
Most significantly, the Ottawa Treaty proves that Canada does not have to wait until the major superpowers of the world lead an initiative; in fact, Canada is capable of causing great positive change without American approval. More than a decade later, the Ottawa Treaty is continuing to make notable positive impacts without the signatures of the United States, China, India, Iran, Israel, Pakistan or Russia. With the support of NGO’s monitoring the world’s progress, the Ottawa Treaty has something that the Kyoto Protocol can only wish for: relative compliance. The Landmine Monitor Report of 2009 states that 86 signatory nations to the Ottawa Treaty have completed the destruction of their anti-personnel landmine stockpiles and that the relative compliance of most nations is impressive. Despite the incredible progress that has been made, much more remains to be achieved in order for a landmine-free world.
On a related note, even though the global landmine crisis has drifted out of the national media’s focus, the fact remains that landmines and Improvised Explosive Devices (or IEDs) are responsible for more than half of the deaths of the 138 Canadian Forces personnel lost in Afghanistan. While acknowledging that this is a military operation and the Ottawa Treaty only refers to anti-personnel landmines that harm civilians, such a statistic with regard to Canada’s current controversial role in Afghanistan draws Canadians’ attention to the global land mine issue. Canadians must not forget that while landmines may not be exploding in their backyards, landmines are taking the lives of Canadians and thousands of others around the world.
Canada’s leadership is needed more than ever in order to continue challenging the world to reach new goals for demining the planet. To continue to build global cooperation, Canada needs to keep funding these demining activities and research. Canada is seen as a world leader in this respect, donating C$45.9 million in 2008 to the International Campaign to Ban Landmines to conduct research, demining activities and providing recommendations. However, this is a seven percent decrease in funding from the previous year (International Campaign to Ban Landmines, 2009). Thus, Canada’s leadership role in this area needs to be reasserted and continued. An excellent example of how this can be done is through student leadership challenges. Mines Action Canada’s 2005 nation-wide competition to create feasible demining technologies was won by three University of Toronto Faculty of Engineering students. This type of initiative combines research with promoting awareness and needs to be supported at university campuses across the country. As well, after signing the Ottawa Treaty, Canada followed through by acting on its commitment with the creation of the Canadian Centre for Mine Action Technologies in Alberta, where engineers are employed to develop landmine neutralization equipment for humanitarian demining (Dudley, 2005). The more people think, discuss and share ideas concerning this global issue, the closer research and development comes to innovative breakthroughs.
Canada should continue to support and expand demining operations because it is a positive, international leadership role for the nation, as well as a vital humanitarian cause. More courage is needed of today’s politicians to be unafraid to issue global challenges for multilateral agreements that could have an immense impact on the world. The Ottawa Treaty exemplifies how Canada has taken an international leadership position in order to bring about global change. While land mines and IEDs remain a pressing global issue, there is much hope for international cooperation that can demonstrate how diplomatic multilateral agreements can succeed.
References
1. Cottrell, M. Patrick. (2009). Legitimacy and Institutional Replacement: The Convention on Certain ConventionalWeapons and the Emergence of the Mine Ban Treaty. International Organization, 63 (2), 217-248.
2. Dudley, Peter. (2005, October 29). Living with Landmines. The Pioneer. Retrieved November 19, 2009, from http://www.canadianfilm.com/research/living_landmines.htm
3. International Campaign to Ban Landmines. (2009). Landmine Monitor Report 2009: Towards a Mind-Free World. New York: Human Rights Watch.
4. International Committee of the Red Cross. (1997). Anti-personnel Landmines – Friend or Foe? A Study of the Military Use and Effectiveness of Anti-Personnel mines. Geneva: ICRC.
5. Mines Action Canada. (2005, March 17). Students from University of Toronto win $5000 in Canada-wide competition dedicated to alleviating suffering caused by landmines. Press Release. Ottawa: Mines Action Canada. Retrieved November 19, 2009, from http://www.minesactioncanada.org/index.cfm?fuse=learn.news-details&id=128
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