The conventions banning mines and cluster munitions

These discussions come in the wake of Russia’s invasion of Ukraine and fears of possible Russian military aggression towards European countries.

The conventions have also come to the fore after the Biden administration, in a reversal of US policy, decided in late 2024 to supply anti-personnel mines to Ukraine.

This briefing explains what the conventions are, discussions about withdrawal, the use of mines and cluster munitions worldwide and in Ukraine, and the UK position.

About the conventions/treaties

There are two conventions in force that prohibit the production, use, stockpile or transfer of anti-personnel land mines and cluster munitions by States Parties:

• The 1997 Convention on the Prohibition of the Use, Stockpiling, Production and Transfer of Anti-Personnel Mines and on their Destruction came into force in 1999. It is also known as the mine ban treaty, the Ottawa Convention or Ottawa Treaty, or the anti-personnel mine ban convention. These terms are used interchangeably in this briefing. 164 countries are party to the convention.
• The 2008 Convention on Cluster Munitions entered into force in 2010. It prohibits the use, production, transfer and stockpiling of cluster munitions. 112 countries are party to the convention.

The Mines Advisory Group (MAG) has said the conventions have been “pivotal in reducing the humanitarian harm posed” by these weapons.

Discussions about withdrawing

Lithuania’s planned withdrawal from the Convention on Cluster Munitions will take effect in early March 2025. All three Baltic nations have considered whether to withdraw from the mine ban treaty. Finland’s Defence Minister has also explored the possibility of reintroducing anti-personnel mines into Finland’s defence posture. The UK Government said it “regrets” Lithuania’s decision to withdraw from the Convention on Cluster Munitions.

Lithuania explicitly referred to Russia’s use of cluster munitions in Ukraine, and the evolving regional security dynamics, in explaining why it is withdrawing from the cluster munitions convention. Finland’s Defence Minister, Antti Hakkanen, said Russia’s use of mines in Ukraine prompted Finland’s re-evaluation of the potential use of mines. In December 2024, Antti Hakkanen said “we cannot exclude the possibility of [Russia and its allies] threatening European countries with the use of military force“.

Effects worldwide

Human Rights Watch describes mines and cluster munitions as “often indiscriminate weapons” which “predominantly affect civilians”.

The International Campaign to Ban Landmines and the Cluster Munitions Coalition produce annual reports on the use of both weapons globally.

The UK is a signatory to both conventions

The UK is a signatory to both conventions. Successive governments have discouraged States from using cluster munitions or anti-personnel mines, and encourages non-States Party to accede to each convention. The UK supports mine clearance operations globally.