UNITED KINGDOM REPRESENTATION
158. In our last Report, we concluded that: "a continued
United Kingdom military and civilian presence in Iraq is likely
to be necessary for some time to come, possibly for several years.
We conclude that this presence must include a significant FCO
component if it is to succeed."[219]
159. In May, the FCO wrote to us about its plans for United
Kingdom representation following the transfer of sovereignty:
We are intending to establish an Embassy in Baghdad, a Consulate-General
in Basra, and a very small Consulate in Kirkuk. The missions in
Baghdad and Basra will both consist of around 80 staff, including
staff from FCO, DFID, MOD, and UKTI, and also the British Council,
DFID consultants and trainers for the Iraqi Ministry of Defence
and police. This will enable us to maintain close links with the
Iraqi Government, as well as providing expert advice to a number
of the Iraqi Ministries. The US are also intending to establish
an Embassy in Baghdad, and smaller missions elsewhere. We are
discussing with the US how best to ensure that we maintain a high
level of co-ordination with them after transition.[220]
160. While there would be changes at the top levels of United
Kingdom representation, Sir Jeremy Greenstock told us: "a
number of people serving with the CPA and in Basra and in my office
at present will continue on into the embassy so that a number
of individuals at all levels will carry on the experience of the
present stage".[221]
161. On 26 April, the FCO announced the appointment of Edward
Chaplin as Ambassador to Iraq, Simon Collis as Consul General
in Basrah and Noel Guckian as Consul General in Kirkuk (Northern
Iraq).[222] We met
Edward Chaplin shortly before he travelled to take up his post
in Baghdad.
Duty of Care
162. In our last Report, we noted the difficult conditions
under which CPA and other officials were working.[223]
We concluded that "United Kingdom personnel in Iraq, both
military and civilian, are making a vital contribution to the
administration and reconstruction of the country, despite having
to work in the most difficult and dangerous circumstances. Their
performance deserves the highest praise, and appropriate recognition."[224]
163. In May, the Foreign Secretary told us:
A lot of work has gone on to better ensure the safety of staff
working for the CPA in Baghdad
In terms of British contractors
working we give public advice through travel advice as well as
detailed and sometimes private advice to contractors and potential
contractors. It obviously includes advice about how they provide
close protection for themselves and also how to link in with the
British and other forces.[225]
164. We recommend that the Government set out in its response
to this Report what steps it is taking following the handover
of sovereignty in Iraq to ensure the safety of United Kingdom
personnel.
165. We recommend that the Government update us in its
response to this Report on the current status of United Kingdom
representation in Iraq. We further recommend that the Government
inform us of its understanding of the constraints imposed by the
security situation on the operations of United Kingdom personnel,
including their ability to move around the country.
Iraq and the wider region
166. In our last Report, we concluded that:
A successful transfer of power to an internationally-recognised
Iraqi government, which has the support of the Iraqi people and
which is recognised by Arab and Muslim states generally, offers
an important opportunity to reduce that threat and to assist the
process of reform and stabilisation in the region.[226]
As we noted earlier, success in Iraq is also critical in the wider
war against terrorism now that al Qaeda is involved in the country.[227]
167. Expanding on the significance of what happens in Iraq,
Dr Dodge told us:
The importance of Iraq to the geo-political stability of the
Gulf and the wider Middle East area can hardly be overestimated.
Geographically it sits on the eastern flank of the Arab Middle
East with Turkey and Iran as neighbours
With oil reserves
second only to Saudi Arabia its economic importance is clearly
global. If the present domestic situation does not stabilise then
violence and political unrest would be expected to spread across
Iraq's long and porous borders. A violently unstable Iraq
would further weaken the already fragile domestic and regional
stability of the surrounding states and the wider region beyond.
Iraq's role as a magnet for radial Islamists from across the Muslim
world, eager to fight US troops on Middle Eastern soil, would
increase. In addition there is a distinct danger that neighbouring
states would be sucked into the country, competing for influence,
using Iraqi proxies to violently further their own regime's interests.[228]
We conclude that the alternative to a positive outcome in Iraq
may be a failed state and regional instability. It is therefore
of the utmost importance that current problems are resolved in
favour of the forces of order and that those who seek to impede
Iraq's transition to a free and democratic state are defeated.
1
HC (2002-03) 405, paras 113-30 & HC (2003-04) 81 para 18. Back
2
HC (2003-04) 81, paras 19-20 Back
3
HC (2003-04) 81, para 56; and HC (2002-03) 405, para 164. Back
4
'Dozens die in Iraq car bomb blast', BBC, 10 February 2004; and
'Huge bomb targets Iraqi recruits', BBC, 17 June 2004. Back
5
The IGC had a rotating presidency. Back
6
'S Korean hostage beheaded in Iraq', BBC, 22 June 2004. Back
7
Ev 187 Back
8
Q184 Back
9
'Iraqis' optimism falls - survey', BBC, 28 June 2004. Back
10
Q312 Back
11
HC (2003-04) 81, para 25. Back
12
FCO, Foreign Policy Aspects of the War against Terrorism: Response
of the Secretary of State for Foreign and Commonwealth Affairs,
Session 2003-2004, Cm 6162, 29 March 2004. Back
13
Ev 55 Back
14
Ev 55 Back
15
Ev 56 Back
16
Q192 [Alani] Back
17
'Iraq PM death threat is serious', BBC, 23 June 2004. Back
18
Q160 Back
19
HC (2003-04) 81, para 23. Back
20
Ev 56 Back
21
See para 60 Back
22
See para 126 Back
23
Q159 Back
24
HC (2003-04) 81, para 28. Back
25
HC (2003-04) 81, para 34. Back
26
Ev 67 Back
27
HC (2003-04) 81, para 37. Back
28
Cm 6162 Back
29
Ev 54 Back
30
Ev 56 Back
31
Q245 Back
32
Q255 Back
33
UNSCR 1546 (2004), para 9. We discuss this Resolution in greater
detail in paras 116-21. Back
34
UNSCR 1546 (2004), para 15. Back
35
'Iraq asks Nato to help in tackling security problems', Financial
Times, 24 June 2004. Back
36
'Alliance to support Iraq with troop training', NATO press release,
29 June 2004. Back
37
'Chirac argues against Nato post-handover role', Financial
Times, 29 June 2004.' Back
38
'Command of forces passes to Iraqis - but no change is likely
in handling of security', Financial Times, 2 July 2004. Back
39
'US military in torture scandal', Guardian, 30 April 2004. Back
40
'Controversial ex-British army officer given key Iraq post', Financial
Times, 19 June 2004. See also FAC Report on Sierra Leone,
HC (1998-99) 116 Back
41
HC Deb, 12 July 2004, col 53-54WS Back
42
'FCO note on Dealing with Private Military and Security Companies
in Iraq, 07.07.04' and 'FCO noted on Guidance on Contracts with
Private Military and Security Companies, 30.06.04'. Back
43
HC Deb, 17 May 2004, col 676W Back
44
'Private Military Companies: Options for Regulation', HC 577 (Session
2001-02) Back
45
Ninth Report of the Foreign Affairs Committee, Session 2001-02,
HC 922 Back
46
FCO, Private Military Companies, Session 2001-2002, Cm
5642, October 2002. Back
47
HC Deb, 7 June 2004, col 32 Back
48
Britons forced in Iran waters, Daily Telegraph, 1 July
2004 Back
49
HC Deb, 13 July 2004, col 1250 Back
50
HC (2003-04) 81, para 40. Back
51
HC (2003-04) 81, para 44. Back
52
Cm 6162 Back
53
Cm 6162 Back
54
Q115 Back
55
Ev 68 Back
56
Ev 187 Back
57
Qq184, 186 Back
58
'Bremer: Iraqis Not Ready to Run Security', Associated Press,
19 April 2004. Back
59
'Iraqi forces 'turn on coalition'', BBC, 22 April 2004. Back
60
'Iraqi forces to take more visible security role', Financial
Times, 29 June 2004; 'Increasingly, the public face of security
is Iraqi', International Herald Tribune, 19 July 2004. Back
61
'Iraqi PM backs strike on Falluja', BBC, 6 July 2004. Back
62
'Fourteen killed in Falluja strike', BBC, 18 July 2004 Back
63
'I want to reconstitute four divisions of the army', Daily
Telegraph, 30 May 2004. Back
64
'Clashes in Baghdad as Allawi signs security law', Reuters,
7 July 2004; and 'Iraq's interim leader signs emergency law',
Guardian, 7 July 2004. Back
65
HC (2003-04) 81, para 9. Back
66
HC (2003-04) 81, para 119. Back
67
Dr David Kay resigned as head of the ISG on 7 December 2003. Back
68
Testimony of Dr David Kay to the US Senate Armed Services Committee,
28 January 2004, available at: http://www.ceip.org Back
69
Testimony of Charles Duelfer to the US Senate Armed Services Committee,
30 March 2004, available at: http://armed-services.senate.gov Back
70
Q239, Liaison Committee, 6 July 2004, HC 310-ii (uncorrected transcript). Back
71
HC Deb, 3 February 2004, col 624-28 Back
72
HC (2003-04) 898, para 397. Back
73
HC (2002-03) 813-I paras 1-33. Back
74
HC Deb, 4 March 2004, col 1051W Back
75
HC Deb, 10 February 2004, col 1305W Back
76
Minutes of Evidence taken before Foreign Affairs Committee, 29
June 2004, Q152, to be published as part of HC 745. Uncorrected
transcript available at: http://www.parliament.uk/parliamentary_committees/foreign_affairs_committee.cfm Back
77
HC Deb, 26 May 2004, col 1637W Back
78
HC Deb, 7 June 2004, col 62W Back
79
Minutes of Evidence taken before Foreign Affairs Committee, 29
June 2004, Q159. Back
80
Ibid Qq155-57 Back
81
HC (2003-04) 81, para 94. Back
82
HC (2003-04) 81, para 106. Back
83
DFID Iraq update 84, 28 April 2004, available at: http://www.dfid.gov.uk Back
84
'Assistance for Iraq', USAID, available at: http://www.usaid.gov/iraq Back
85
'Iraq reconstruction: Health', Occupation Watch, 7 April 2004,
available at: http://www.occupationwatch.org Back
86
Iraq situation report, UN, 7-13 June 2004, available at: http://www.uniraq.org Back
87
'Administrator's Weekly Report', CPA, 12-18 June 2004. Back
88
Q299 Back
89
Q310 Back
90
Ev 188 Back
91
'Russian contractors to quit Iraq', BBC, 26 May 2004; 'Contractors
in Iraq cut back on work', Financial Times, 23 April 2004;
and 'Violence in Iraq forces two big contractors to curb work',
New York Times, 22 April 2004. Back
92
HC (2003-04) 81, para 106. Back
93
Cm 6162 Back
94
Ev 188 Back
95
'Iraq donors pledge at least US$13bn', BBC, 24 October 2003. Back
96
The Madrid donor conference was held in October 2003. Back
97
Q13 Back
98
DFID Iraq update 77, 8 March, available at: http://www.dfid.gov.uk Back
99
Q11 Back
100
Ev 68 Back
101
Q124 Back
102
Ev 68 Back
103
'Iraq takes charge of Saddam case', BBC, 30 June 2004. Back
104
'Saddam mocks Iraqi court', Financial Times, 2 July 2004. Back
105
HC (2003-04) 81, para 95. Back
106
'Update on the Iraqi Economy', DFID update 89, 3 June 2004, available
at: http://www.dfid.gov.uk See also 'Elements of the economy strong
despite violence', Financial Times, 29 June 2004. Back
107
Q25 Back
108
'Partnership for progress and a common future with the region
of the broader middle East and North Africa', G8, Sea Island,
Georgia, 9 June 2004, available at: http://www.g8usa.gov Back
109
'Update on the Iraqi Economy', DFID update 89, 3 June 2004, available
at: http://www.dfid.gov.uk Back
110
Iraq Resumes Some Oil Exports', Washington Post, 21 June
200; and 'Saboteurs hit Iraq's oil lifeline', Financial Times,
16 June 2004. Back
111
'Attacks cripple Iraq oil exports', BBC, 15 June 2004. Back
112
'Crude Oil Jumps to One-Month High After Iraqi Exports Halved',
Bloomberg, 6 July 2004. Back
113
'British troops hunt night oil raiders who are bleeding Iraq',
Daily Telegraph, 13 July 2004 Back
114
HC (2003-04) 81, para 110. Back
115
HC (2003-04) 81, para 109. Back
116
Ev 128 Back
117
UNSCR 1546, para 24. Back
118
'UN slams US over spending Iraq funds', Financial Times,
21 June 2004. Back
119
'Fuelling suspicion: the coalition and Iraq's oil billions', Christian
Aid, June 2004. Back
120
HC (2003-04) 81, para 107. Back
121
HC (2003-04) 81, para 108. Back
122
Cm 6162 Back
123
UNSCR 1546, paras 10, 15, 20 & 28. Back
124
Article 26 (c) of the Transitional Administrative Law of March
2004 (which will act as a transitional constitution for Iraq)
states that "The laws, regulations, orders and directives
issued by the Coalition Provisional Authority pursuant to its
authority under international law shall remain in force until
rescinded or amended by legislation duly enacted and having the
force of law." Under the Annex to the TAL, which was agreed
in 1 June, the Interim Government "may issue orders with
the force of law that will remain in effect until rescinded or
amended by future Iraqi governments." Back
125
'Coalition Provisional Authority Order Number 17 (revised), Status
of the Coalition Provisional Authority, MNF - Iraq, Certain Missions
and Personnel in Iraq', available at: http://www.iraqcoalition.org Back
126
UN press release, 3 May 2004. Back
127
Ev 129 Back
128
HC (2003-04) 81, para 96. Back
129
Cm 6162 Back
130
Ev 158 Back
131
'Handover in Iraq: the inheritance', Financial Times, 29
June 2004. Back
132
Q109. Back
133
HC (2003-04) 81, para 110. Back
134
Cm 6162 Back
135
Ev 158 Back
136
HC (2003-4) 81, paras 62-65. Back
137
HC (2003-04) 81, paras 58-59; HC (2002-03) 405, paras 131-42. Back
138
HC (2003-04) 81, paras 66-70. Back
139
'Agreement on Political Process', signed by Paul Bremer and Jalal
Talabani, 15 November 2003. Back
140
'Changes in US Iraq Plan are explored', Washington Post,
25 January 2004. Back
141
'Shia party voices dissent over Iraqi interim government', Financial
Times, 3 June 2004 Back
142
'Executive Summary, The Transitional Administrative Law', CPA,
available at: http://www.cpa-iraq.org Back
143
HC (2003-04) 81, para 92. Back
144
Cm 6162 Back
145
HC (2003-04) 81, paras 90-91 Back
146
'Iraqis protest at handover plan', BBC, 19 January 2004. Back
147
'The political transition in Iraq: report of the fact-finding
mission', UN, 23 February 2004, S2004/140. Back
148
'The political transition in Iraq: report of the fact-finding
mission', UN, 23 February 2004, S2004/140. Back
149
'Security Council, in presidential statement, strongly supports
decision to dispatch UN assistance teams to Iraq as soon as possible',
UN press release SC/8035, 24 March 2004. Back
150
'Statement of the Special Adviser to the Secretary-General, Lakhdar
Brahimi, to the Security Council on the political transition process
in Iraq', 27 April 2004, available at: http://www.un.org Back
151
Ibid Back
152
Ibid Back
153
Q187 [Dodge] Back
154
Q191 Back
155
Ev 54 Back
156
Q297 Back
157
Ev 187 Back
158
Ev 54 Back
159
HC Deb, 7 June 2004, col 21 Back
160
'Days of wrangling draw to a close as Iraq picks caretaker government',
Financial Times, 2 June 2004. Back
161
Ev 187 Back
162
'Shia party voices dissent over Iraqi interim government', Financial
Times, 3 June 2004. Back
163
'Timing of Saddam handover opens rift', Financial Times,
16 June. Back
164
See paras 42-43 Back
165
'Iraq amnesty announcement delayed', Guardian, 5 July 2004. Back
166
See para 24 Back
167
'Transcript of doorstep given by the Prime Minister, Mr Tony Blair,
in Georgia on 8 June 2004', available at: http://www.number-10.gov.uk Back
168
This issue is discussed in more detail in para 149. Back
169
'Tensions over Iraq resurface at G8 summit', Financial Times,
10 June 2004. Back
170
'Nato plans Iraq mission despite Chirac', Financial Times,
3/4 July 2004. We discuss elsewhere the Jordanian offer to sent
troops to Iraq, see para 25. Back
171
Text of letter from the Prime Minister of the Interim Government
of Iraq, Dr. Ayad Allawi and United States Secretary of State
Colin L. Powell to the President of the Council', 5 June 2004,
annex to UNSCR 14546 (2004). Back
172
Q253, Liaison Committee, HC 310-ii, (uncorrected transcript). Back
173
Q262, Liaison Committee, HC 310-ii, (uncorrected transcript). Back
174
See 'Transitional Administrative Law'. Back
175
'The political transition in Iraq: report of the fact-finding
mission', UN, 23 February 2004, S2004/140. Back
176
'UN announces establishment of Iraq's Independent Electoral Commission',
UN press release, 4 June 2004. Back
177
Q200 Back
178
Ev 51 Back
179
Ev 51 Back
180
HC Deb 7 June 2004, col 23 Back
181
Text of letter from the Prime Minister of the Interim Government
of Iraq, Dr. Ayad Allawi and United States Secretary of State
Colin L. Powell to the President of the Council', 5 June 2004,
annex to UNSCR 1546 (2004). Back
182
HC (2003-04) 81, paras 71-87. Back
183
'Statement of the Special Adviser to the Secretary-General, Lakhdar
Brahimi, to the Security Council on the political transition process
in Iraq', 27 April 2004, available at: http://www.un.org Back
184
Q196 Back
185
We discuss this issue in greater detail in paras 4-8. Back
186
HC (2003-04) 81, para 27. Back
187
Cm 6162 Back
188
'Red Cross told US last year about abuse of prisoners', Financial
Times, 8 May 2004. See also: http://www.reliefweb.int/w/rwb.nsf/0/f02bb927d411ce1549256e900019fd50?OpenDocument Back
189
HC Deb, 8 June 2004, col 5-6WS Back
190
Q209 Back
191
Ev 158 Back
192
Ev 80 Back
193
Q307 Back
194
Q204 [Alani] Back
195
'Red Cross concerned over POWs once Iraqis take over', Financial
Times, 15 June 2004. Back
196
Q126 Back
197
Ev 69 Back
198
Ev 157 Back
199
Q245 Back
200
Q185 Back
201
'What Iraq needs from a handover', Financial Timeseditorial,
Gareth Evans and Robert Malley, 28 April 2004. The article draws
on the ICG's report 'Iraq's Transition: On a Knife Edge', 27 April
2004.] Back
202
'Statement of the Special Adviser to the Secretary-General, Lakhdar
Brahimi, to the Security Council on the political transition process
in Iraq', 27 April 2004, available at: http://www.un.org/apps/news/infocusnewsiraq1.asp?NewsID=730&sID=19 Back
203
Qq 111-12 Back
204
'Transcript of press conference given by the Prime Minister, Mr
Tony Blair, in London on Tuesday, 25 may 2004', available at:http://www.number-10.gov.uk Back
205
'Blair insists that Iraq must have veto over troops' Financial
Times, 26 May. Back
206
Q300 Back
207
See Appendix. Back
208
'Text of letters from the Prime Minister of the Interim Government
of Iraq Dr. Ayad Allawi and United States Secretary of State Colin
L. Powell to the President of the Council', 5 June 2004. This
language is used in both letters. Back
209
'Text of letters from the Prime Minister of the Interim Government
of Iraq Dr. Ayad Allawi and United States Secretary of State Colin
L. Powell to the President of the Council', 5 June 2004. Back
210
HC Deb, 8 July 2004, col 827W Back
211
'Coalition Provisional Authority Order Number 17 (revised), Status
of the Coalition Provisional Authority, MNF - Iraq, Certain Missions
and Personnel in Iraq', Section 19, available at: http://www.iraqcoalition.org Back
212
See paras 1-8 Back
213
Q183 Back
214
HC (2003-04) 81, para 78. Back
215
Cm 6162 Back
216
Cm 6162 Back
217
Q185 Back
218
Ev 52 Back
219
HC (2003-04) 81, para 117. Back
220
Ev 67 Back
221
Q18 Back
222
Press release, FCO, 26 April 2004. Back
223
HC (2003-04) 81, para 50. Back
224
HC (2003-04) 81, para 51. Back
225
Q214 Back
226
HC (2003-04) 81, para 123. Back
227
See paras 12-20 Back
228
Ev 57 Back