SC/9356
Security Council
5910th Meeting (AM)
United States Briefs on Behalf of Multinational Force; Iraq's Foreign Minister Says Corner Turned in Fight against Insurgency, Terrorism
While highlighting that recent efforts of the Iraqi Security Forces and the Multinational Force had markedly improved Iraq's security situation to its best level in four years, the United States representative, speaking on behalf of the Multinational Force, warned this morning that the Iraqi Government must take complementary steps to sustain such achievements.
"Tremendous progress has been made, but these hard-won gains are vulnerable, and the Government and people of Iraq still have some distance to go," he told the Security Council during a meeting on the situation in Iraq. Civilian deaths due to violence had dropped 75 per cent since July 2007, while all other major violence indicators were markedly lower compared to pre-surge levels. The Iraqi Security Forces had assumed command and control of Iraq's Army. However, for many Iraqi families, the effects and threats of violence continued to be a daily concern and the continued presence of foreign fighters, notably from Syria and Iran, was worrisome.
He said Iraq's steps forward must include action to support the delivery of humanitarian aid and essential services to all its citizens, including Iraqi refugees. He called for sustainable job creation and continued progress on political reconciliation, as well as in budget execution, so Iraq could take increasing responsibility for reconstruction and development. Credible provincial elections would also help facilitate reconciliation and the creation of representative provincial Governments. The United States and Iraqi Governments were negotiating a long-term relationship that would recognize that transition, he said. He urged Iraq's neighbours and the entire international community to pitch in and help the Iraqis finish the job.
Hoshyar Zebari, Minister for Foreign Affairs of Iraq, said that, indeed, his country was striving to make that transition a success. The Iraqi Security Forces had grown to almost 600,000 strong and had assumed primary responsibility for more than half of Iraq's 18 provinces, winning the trust of the Iraqi people. With the support of the Multinational Force, Iraq had "turned a corner" in the fight against the insurgency and terrorism. At the same time, the Government continued to monitor the vigilance of military and security leaders in preventing civilian casualties and respecting international humanitarian law during their operations. Such security and political gains had "led the Iraqi people to pull together to reverse a potentially devastating decline into sectarian war".
Iraq was also negotiating bilateral strategic agreements with the United States to provide the framework for security arrangements that would address Iraq's security needs covered in the current Multinational Force mandate, Mr. Zebari said. Those agreements -- which should reflect the progress in developing the Iraqi Security Forces -- would entail transparent processes, subject to approval by the elected Council of Representatives, and would preserve the sovereignty and national interests of Iraq and its people. Overall, there was a renewed sense of optimism for the nation. "We have proved we can be successful in Iraq and my Government is confident of recovery," he said, calling on the family of nations to "stand with us in solidarity and hope".
Ibrahim Gambari, Special Adviser on the International Compact with Iraq and Other Issues, who briefed the Council on the latest activities of the United Nations Assistance Mission for Iraq (UNAMI), said urgent steps were needed to pursue political dialogue and reach lasting solutions. Important talks on the return of the leading Sunni bloc, Tawafuq, to the Government was a good indication of progress in that regard, and he was hopeful that similar efforts would create positive momentum towards national reconciliation. The Mission was doing its part to advance that process by helping with political facilitation, the resolution of disputed boundaries, constitutional and electoral assistance, human rights and humanitarian reconstruction and development assistance. Last week, it had presented its first analysis of Iraq's disputed internal boundaries, focusing on four specific districts in the north.
Iraqi ownership of the process to end internal boundary disputes, particularly the status of Kirkuk, was essential, he stressed. UNAMI had set up a presence in Kirkuk to build confidence among divided communities to resolve administrative and jurisdictional issues. The Mission was also helping the Iraqi High Electoral Commission plan for the upcoming voter registration update and governorate council elections, as well as supporting the ongoing constitutional review process -- an important way for Iraqi communities to reach national political agreement of the main elements of their future State.
Warren Sach, Assistant Secretary-General and Controller for the Office of Programme Planning, Budget and Accounts, speaking in his capacity as the Secretary-General's designated representative of the International Advisory and Monitoring Board, said the results of the 2007 audits indicated that the overall financial system of controls in place in Iraq's spending ministries, the United States agencies handling of outstanding commitments using resources of the Development Fund for Iraq and Iraq's administration of Fund resources remained deficient.
The Board -- set up to ensure that the Development Fund was used transparently to benefit Iraq's people and that export sales of Iraq's petroleum, petroleum products and natural gas were consistent with prevailing international market best practices -- had found incomplete record keeping at the Ministry of Finance, he said. It had also discovered the lack of a comprehensive oil metering system, the sale of oil and oil products outside of the Fund, incomplete contract information associated with the United States agencies' contracts and bartering. Moreover, he expressed concern that Iraq's spending ministries had implemented less than 15 per cent of the Board's previous recommendations. He urged the Iraqi Board of Supreme Audit, with the help of the Committee of Financial Experts, to set up a concrete plan of action to ensure implementation.
Several Council members also took the floor to laud Iraq's recent security gains, as well as its efforts to build an autonomous defence, establish a legitimate State and authority, and defeat Al-Qaida. Its advances towards national reconciliation, notably on the amnesty law and the revising of legislation on de-baathification, were also commended, as were Iraq's improved collaboration with neighbouring countries. However, the overall humanitarian situation, and the fact that the number of Iraqi refugees and internally displaced persons remained high, was worrisome. Council members agreed on the need for the continued presence of the Multinational Force in Iraq during the transition period. But, some expressed hope that the current Multinational Force mandate would be the last.
The representatives of Italy, Panama, Libya, Burkina Faso, Croatia, South Africa, United Kingdom, China, Belgium, Costa Rica, Viet Nam, Indonesia, France and the Russian Federation also spoke.
The meeting began at 10:40 a.m. and adjourned at 1:05 p.m.
Background
The Security Council met this morning to consider the situation in Iraq.
Briefings
ZALMAY KHALILZAD (United States), speaking on behalf of the Multinational Force in Iraq, said the security environment in Iraq continued to improve thanks to the efforts and sacrifices of the Iraqi Security Forces and the Multinational Force. All major violence indicators were markedly lower compared to pre-surge levels. The Iraqi Security Forces had made important strides in capability and proficiency, and had now assumed command and control of all of Iraq's Army divisions. Iraqi and coalition forces had achieved those security gains even as coalition forces had been drawing down from surge levels.
While the progress was encouraging, he said, challenges remained and for many Iraqi families the effects and threats of violence continued to be a daily concern. Advancements in security must be expanded and consolidated, and complemented by commensurate gains in national reconciliation and governance.
Total security incidences had fallen to their lowest level in more than four years, notwithstanding a temporary increase in violence associated with recent Iraqi military operations in Basra, Sadr City and Mosul, he said. Civilian deaths due to violence had fallen by 75 per cent since July 2007 and monthly high-profile attacks, such as care bombs, had decreased in May 2008. However, suicide bombers remained a threat, increasing from October 2007 to February 2008, before declining in March and April 2008. High-profile attack explosions for May 2008 were down more than 70 per cent from the peak in March 2007.
The number of deaths due to ethno-sectarian violence was now at the lowest level in the past several years, illustrating the growing inability of the terrorists to reignite the cycle of ethno-sectarian violence, he said. During the last two weeks of May 2008, there had been no confirmed ethno-sectarian deaths in Baghdad. At the same time, he remained concerned by the presence of foreign fighters in Iraq. Syria must do more to halt the operation of foreign fighter networks within its territory, which continued to supply the overwhelming majority of suicide bombers responsible for the deaths of innocent Iraqis. Iran must also cease the training, equipping and financing by the Iran Republican Guards Corps-Quds Force of violent Iraqi elements, who had challenged Iraq's security and the authority of the Iraqi Government and its security forces. He called on Iran to follow through on its pledge to respect the sovereignty of Iraq and the integrity of its borders, which to date it had not done.
More than 559,000 personnel now served in the Iraqi Security Forces, an increase of more than 19,000 personnel since the last report to the Council in April, he said. As of 1 May 2008, 147 Iraqi Army combat battalions were conducting operations, which represented an increase of 24 combat battalions since his last report. Among the formed battalions, 65 per cent were rated as able to take the lead in operations, as well as to plan, execute and sustain operations with minimal or no assistance from coalition forces. Both the Iraqi Air Force and the Iraqi Navy were gaining proficiency, as well. Over the past nine months, the Iraqi Air Force sortie rate had increased by almost 750 per cent and the number of Iraqi Navy patrols had grown by approximately 250 per cent.
The Iraqi National Police also continued to increase its proficiency, he said, noting that there were now 44 National Police battalions authorized, including the National Emergency Response Unit. In the last three months, there had been a significant increase in Iraqi-led operations. Iraqi Security Forces continued to grow and improve, but at varying rates. In many areas throughout Iraq, Iraqi Special Operations Forces, Army battalions, National Police and Special Police units operated independently of, or side by side with, coalition forces.
More than 30 countries currently played a critical role in enhancing Iraq's security, whether by participating as a coalition member, supporting the training mission of the North Atlantic Treaty Organization (NATO) or contributing to the operations of the United Nations Assistance Mission for Iraq (UNAMI), he stressed. Coalition members other than the United States contributed some 10,000 forces to the Multinational Force, as well as 450 personnel to support UNAMI. It was important to recognize that Iraqi and coalition forces had achieved security gains. By the end of May 2008, three United States Brigade Combat teams, two United States Marine battalions and a Marine expeditionary unit had left Iraq without replacement. Australia had also withdrawn its forces from Dhi Aar province in early June.
As of mid-May 2008, he said, the Iraqi Ground Forces Command had assumed command and control of 12 Iraqi Army divisions, including 50 brigade headquarters and 164 battalions. Operational commands had expanded to include the provinces of Ninewa, Karbala, Samarra, Basra and Diyala. Iraq's Government continued to assume greater provincial security responsibility through the Provincial Iraqi Control process.
Finally, he wanted to highlight that the United States and Iraqi Governments were now in the process of negotiating a long-term relationship that would recognize that transition and the increasing ability of Iraqi Security Forces to assume greater responsibility for security and stability.
"It is clear that the recent improvements in the security situation throughout Iraq are significant," he said. "Nonetheless, the Government of Iraq must intensify the implementation of complementary measures to sustain these gains." Those measures included action to support the delivery of humanitarian assistance and essential services to all Iraqi citizens, including Iraqi refugees; continued improvement in budget execution to advance Iraqi responsibility for reconstruction and development; the generation of sustainable employment; and continuing progress on political reconciliation. Credible provincial elections would also play an important role in facilitating reconciliation and the formation of representative provincial governments.
"We can, and we must, help Iraq succeed," he said. "This struggle for the future of Iraq is vital, for it will shape the future of the broader Middle East, and the future of the broader Middle East will affect the stability and security of us all. Tremendous progress has been made, but these hard-won gains are vulnerable, and the Government and people of Iraq still have some distance to go." He urged Iraq's neighbours and the entire international community to pitch in and help the Iraqis finish the job.
IBRAHIM GAMBARI, Special Adviser on the International Compact with Iraq and Other Issues, briefed the Council on the latest activities of UNAMI. He said that, at the recent Stockholm Conference on the Iraq Compact, United Nations Secretary-General Ban Ki-moon had said that, if one word were to be used to describe the situation in Iraq today, that word would be "hope". There was, indeed, new hope that the Iraqi people and Government had started to overcome daunting challenges and work together at rebuilding their country, after decades of dictatorship, neglect and conflict. The Secretary-General's recent report had noted security improvements in many parts of Iraq, and that encouraging trend was continuing.
Thanks to the concerted efforts of the Government of Iraq and other stakeholders, there had been steady progress in improving the capacity of Iraqi Security Forces, curbing the activities of militias and other armed groups, and strengthening of the rule of law in Basra, Baghdad, Mosul and other places. At the same time, he stressed that the situation remained fragile. "Ordinary Iraqi's continue to face the threat of violence in the form of terrorist attacks, sectarianism or criminal acts, and violations of human rights continue to occur," he said, adding that the delivery of essential services must also be urgently improved to help the average Iraqi family cope with daily life.
In order to secure the gains that had been made on the economic and security fronts, urgent steps were needed to pursue political dialogue and reach lasting solutions. He said there were indications that some progress was being made in that regard, including important talks on the return of the leading Sunni bloc, Tawafuq, to the Government. He was hopeful that those and other efforts would create positive momentum towards national reconciliation. For its part, the United Nations remained committed to carrying out its mandate under Security Council resolution 1770 (2007). UNAMI had stepped up its efforts to assist Iraq in a number of areas, including political facilitation, the resolution of disputed boundaries, constitutional and electoral assistance, human rights and humanitarian reconstruction and development assistance.
He went on to say that, last week, UNAMI had presented its first analysis regarding Iraq's disputed internal boundaries, focusing on four specific districts in the north of the country. The Special Representative of the Secretary-General had stressed the need for Iraqi ownership of the process and said that the UNAMI was determined to help the parties concerned find an acceptable process to resolve the disputes, bearing in mind that the Iraqi Government alone had the sovereign responsibility to make decisions on such a complex matter. UNAMI was also looking at ways to promote confidence-building measures in communities that remained divided and suspicious of each other's intentions.
Central to any efforts to address disputed internal boundaries was the issue of resolving the status of Kirkuk, he continued. To that end, UNAMI had recently established a presence in that city and would continue to engage all the parties there to work towards resolving administrative and jurisdictional issues. "This is no easy undertaking, and it will require time, patience and hard decisions and compromises on the part of the Iraqi leadership," he added.
He went on to touch on other issues, including UNAMI's work with the Iraqi High Electoral Commission on planning for the upcoming voter registration update and governorate council elections before the end of 2008. UNAMI was also supporting the ongoing constitutional review process, which it believed was an important mechanism where Iraqi communities could work towards national political agreement on the fundamental elements of the Iraqi State. He also stressed the importance of international and regional support to the Iraqi people as they faced the challenges ahead. Indeed, such support was essential for stability, and there were hopeful signs that progress was being made in light of the outcome of the 29 May Stockholm conference and expanding contacts, dialogue and agreements with Iraq's neighbours, including Kuwait and Turkey.
On human rights and humanitarian matters, he said that, in recent weeks, UNAMI had focused its monitoring and advocacy activities on addressing the needs of civilians living in areas where intense fighting had taken place. The Mission hoped to gain access to detention centres to better assess the plight of detainees, which could possibly include minors. Although much had been accomplished in Iraq, much remained to be done in the areas of human rights and the rule of law. To that end, he told the Council that UNAMI was helping the Government draft legislation and establish important institutions, including a national human rights commission, among others.
He said that UNAMI was also redoubling its efforts to alleviate the suffering of Iraqi refugees and internally displaced persons. The Mission believed that, together with the Government of Iraq and the wider international community, the United Nations could help host countries, especially Jordan and Syria, cope until safe and voluntary return was possible. For its part, the United Nations was developing a programme for refugee return to ensure that the Iraqi Government and aid agencies were ready when conditions were ripe for such returns to take place.
He said the Secretary-General remained committed to seeing the United Nations do more in Iraq under resolution 1770 (2007). Indeed, despite security challenges, UNAMI continued to expand its presence and activities. A trust fund had been established in 2004 to accept and administer contributions from Member States in support of the Multinational Force. Currently there were only enough funds to cover its operating costs until the end of August. The Secretary-General appealed to Member States to contribute to the Fund to ensure its operation through the end of the year and, possibly, beyond.
"Despite progress in many areas, it should not be forgotten that Iraq is still a country in transition, recovering from three conflicts during the past 30 years," he said, recalling the heavy burdens of war, dictatorship and neglect that had led to the immense suffering of the people. Although their personal security had improved in many parts of the country, daily life remained a constant struggle. "Now more than ever, urgent steps need to be taken to broaden national reconciliation process and find solutions that will support a sustainable peace," he said, stressing that that would require courage, brave leadership and often painful decisions and compromises. But, the ultimate reward would be a peaceful, prosperous and stable Iraq.
Addressing such fundamental issues as the sharing of resources, the future federal nature of the Iraqi State and resolution of disputed internal boundaries required wisdom, patience and strong political will, he continued. It was ultimately up to Iraqis to make the right choices and build sustainable and lasting peace. "This is not just a challenge for the leadership of Iraq, but for all its communities," he said, pledging the support of the United Nations during that process.
WARREN SACH, Assistant Secretary-General and Controller for the Office of Programme Planning, Budget and Accounts, speaking in his capacity as the Secretary-General's designated representative of the International Advisory and Monitoring Board, briefed the Council on the Board's work. He said the Board's mandate had been extended under resolutions 1546 (2004), 1637 (2005), 1723 (2006) and 1790 (2007). Resolution 1790 also extended the immunity of the Development Fund for Iraq until 31 December 2008.
From its inception to 31 December 2007, the Fund had been informed that about $106.3 billion had been deposited in the Fund from the sale of oil and oil products, he said. A total of $10.4 billion had also been deposited in the Fund from the balance of the oil-for-food funds held in escrow by the United Nations, and a further $1.5 billion had been deposited as proceeds from frozen assets. The Board had helped to ensure that the Fund was used transparently for the benefit of Iraq's people and that export sales of petroleum, petroleum products and natural gas from Iraq were made consistent with prevailing international market best practices.
The Board had provided independent and international oversight of the operations of Iraqi oil export revenues and of the use of the Fund's resources, thus functioning as the Fund's audit oversight board, he continued. Its members included representatives from the Arab Fund for Economic and Social Development, the International Monetary Fund (IMF), the Iraqi Government, the United Nations and the World Bank. The Board also continued to involve the Iraqi Board of Supreme Audit and the Committee of Financial Experts. Since his last briefing, the Board had met twice, bringing the total of meetings to 23 since December 2003. It had approved the appointment by Iraq's Government of independent public accountants as the external auditors. It had reviewed the periodic audits results and requested and approved special audits.
Under its mandate in 2007 and 2008, the Board had overseen two audits of the Fund covering the calendar years 2006 and 2007, he said. The audits, conducted by Ernst & Young, covered oil export sales to ensure that such sales were consistent with prevailing international market best practices; the accounting for the proceeds from oil export sales; the Fund's financial statements; and disbursement procedures for Fund resources to ensure that funds were used for the intended purposes. At its meeting in May 2008 in Kuwait, the Board had received a presentation on the draft audit report of the Fund covering the period 1 January to 31 December 2007.
While highlighting some improvements in various areas, especially the access to spending ministries, the report also highlighted the previously identified weaknesses in internal controls, he said. Those weaknesses included incomplete record keeping at the Ministry of Finance; lack of a comprehensive metering system; sale of oil and oil products outside of the Fund; incomplete contract information associated with the United States agencies' contracts; and bartering.
The Board had also been briefed by the auditors during the May 2008 meeting on the status of implementation of the previously identified recommendations, he said. A less than 15-per-cent implementation rate of audit recommendations had been reported with respect to the spending ministries. The Board was concerned about the rate of implementation of the prior recommendations and it urged the Iraqi Board of Supreme Audit, with the help of the Committee of Financial Experts, to set up a concrete plan of action to ensure implementation of the recommendations. The Board's Iraqi representative, the Iraqi Board of Supreme Audit President and Committee of Financial Experts had briefed the Board throughout 2007 and during the last two meetings in 2008 on progress in implementing earlier Board recommendations and in strengthening the overall framework for public financial management in Iraq.
The Board welcomed progress in 2008 to strengthen the financial and administrative controls over the use of Fund resources in the spending ministries, he said. The Board had recommended in 2004 the expeditious installation of a comprehensive oil metering system in Iraq, in accordance with standard oil industry practices. Oil metering was a key factor in achieving financial transparency and accountability over oil resources in Iraq. While the Iraqi Government supported oil metering, progress had been slow.
Further, the Board continued to be concerned that barter transactions were not accounted for in the Fund as required by Council resolution 1483 (2003), he said. While noting some reduction in bartering since 2004, following the allocation of Iraqi budget funds to import light petroleum products, the Iraqi State Oil Marketing Organization had continued to undertake bartering in 2007. The use of bartering made it difficult to determine whether fair value had been received for Iraq's oil export revenues.
The results of the 2007 audits indicated that, while many efforts had been made, the overall financial system of controls in place in the spending ministries, the United States agencies handling of outstanding commitments using Fund resources and the Iraqi administration of Fund resources remained deficient, and financial management resources needed to be pursued further, he concluded. The Board, at its May 2008 meeting, had been provided an update on the status of the procurement for the 2008 audit of the Fund. Given the satisfactory work performed by the current auditors, the representative of Iraq had sought the Board's approval to negotiate with Ernst & Young for a third term. The Board had unanimously approved the recommendation.
Turning to the previous request for a briefing of the Council in Washington, D.C., he said the matter had been put before the Board. The Board reiterated its earlier position that, as had been the practice, individual Board representatives should brief their respective organizations in an individual capacity. The Board agreed such a briefing should be given by the Secretary-General's representative to the Board.
HOSHYAR ZEBARI, Minister for Foreign Affairs of Iraq, said the five-year milestone in his country's democratic transition had just passed, and although Iraq continued to endure profound challenges, it had made commendable and significant accomplishments in the security, political and economic fields. At the same time, however, he acknowledged that the gains, while tangible, remained fragile and that the Government's top priority was to consolidate and capitalize on what had been achieved.
He told the Council that Iraq was experiencing the lowest levels of overall violence, including the number of terrorist attacks, since March 2004. "Our country has stepped back from the brink of civil war and the Iraqi people and communities have encouraged a number of initiatives to protect our civilians and our livelihoods," he said, adding that Al-Qaida had been routed from its strongholds with the help of local communities, and that there had been widespread support for the Government's programme to demobilize unlawful militias. Further, the Iraqi Security Forces continued to strengthen its capacity, skill and confidence with clear and positive improvements in training and professionalism.
The Iraqi Security Forces had increased in size to nearly 600,000 strong and had primary responsibility for more than half of Iraq's 18 provinces. Their efforts had won the trust of the Iraqi people, he said, and with the support of the Multinational Force, they had "turned a corner" in the fight against the insurgency and terrorism in Iraq. At the same time, the Government continued to monitor the vigilance of military and security leaders in preventing civilian casualties and respect international humanitarian law during their operations.
He said the Government had taken concerted action to make improvements in security, political and economic areas towards strengthening national reconciliation and imposing the rule of law. In April, senior Government officials had issued a 15-point statement calling on all parties and political blocks to dissolve and disarm their militias.
Further, the Government had successfully imposed the rule of law in Basra, "a city where State authority had been challenged by militias, criminals and armed groups". The Government's willingness to confront illegal elements head on in Basra, as well as in Sadr City and Baghdad, was evidence of its increasing confidence and ability to boost security.