House of Commons - International Development

Select Committee on International Development Written Evidence

Memorandum submitted by the Department for International Development

1. INTRODUCTION

1. This Memorandum aims to address the questions raised by the Committee in announcing this Inquiry on 21 July. It focuses on the role of DFID and of the wider donor community, since the end of major hostilities in April 2003. The final section provides a brief overview of current progress on reconstruction.

2. DFID PROGRAMME IN IRAQ, APRIL 2003 TO OCTOBER 2004

2. DFID's current strategy for Iraq is set out in the Interim Country Assistance Plan, which was published in February 2004. Its development goal is an inclusive, Iraqi-led reconstruction process which brings sustained benefits to all citizens, particularly the poor and vulnerable. Its three primary objectives are:

— To promote rapid, sustainable and equitable economic growth.

— To encourage effective and accountable governance.

— To promote social and political cohesion and stability.

3. The principal elements of DFID's programme in Iraq, as it has evolved since April 2003, have been as follows:

(a) The initial priorities were to ensure an effective response to humanitarian needs arising from the 2003 conflict, and then to begin supporting the process of reconstruction.

(b) From the end of the 2003 conflict until the handover to the Interim Iraqi Government (IIG) on 28 June 2004, DFID contributed advisers to the Office for Reconstruction and Humanitarian Assistance (ORHA) and then to its successor, the Coalition Provisional Authority (CPA).

(c) Beginning in the summer of 2003, DFID developed a programme to support the regeneration of the southern four Governorates, amongst the poorest parts of Iraq, and to restore their links with the centre.

(d) DFID has also developed a "National Programme" primarily to provide advice to the new IIG on core central government functions, and also to promote Iraqi civil society and political participation.

(e) Multilaterally, DFID has worked to strengthen international support for Iraq's reconstruction, and has contributed £70 million to the International Reconstruction Fund Facility for Iraq (IRFFI) to enable the World Bank and United Nations to assist in a wide range of sectors.

4. These elements are described in more detail in the following sections. A summary list of the projects funded is at annex 1.

(a) 2003 humanitarian assistance through the UN, ICRC and NGOs

5. The primary objectives of DFID's humanitarian assistance in 2003 were to ensure that the international community was sufficiently prepared to avert any major humanitarian crisis arising from the 2003 conflict, and to assist in the restoration of essential services after the conflict. DFID contributed £85 million towards the humanitarian and reconstruction operations of UN Agencies in response to appeals launched in March and June 2003. DFID committed £32 million to the International Red Cross and Red Crescent (IRRC) movement in 2003, £18 million of which has been disbursed, primarily to the International Committee of the Red Cross (ICRC). Some of this has subsequently been carried forward into 2004 due to IRRC's inability to operate within the deteriorating security situation. This assistance has provided emergency rehabilitation and repair work at vital health, water and sanitation facilities serving millions of people throughout the country. We are considering with the ICRC and the IFRCS to what extent further support may be needed. £7.2 million was also provided to NGOs for their post conflict humanitarian work in Iraq, in sectors including: health, nutrition, water and sanitation, food, agriculture, security, mines action, media, humanitarian co-ordination and information, displaced people, power, fuel, education, and human rights.

6. The UN agencies, ICRC and NGOs were able to set up effective humanitarian operations quickly after the end of the major conflict in 2003, using their previous experience of working in Iraq and established local networks with capacity to deliver assistance on the ground. The deteriorating security situation since mid-2003, particularly following the UN and ICRC bombings, has resulted in a significant reduction in the numbers of their international (non-Iraqi) staff able to work in Iraq. This has caused some slowing down of the implementation of assistance programmes. However, many organisations' Iraqi staff have continued to operate discreetly, and effectively, and assistance has been channelled though emerging Iraqi NGOs and private sector companies. International NGOs have also retained a stronger presence in Kurdish-controlled areas where they have been able to operate more easily and have a good track record.

(b) Support for the Coalition Provisional Authority

7. From mid-2003 until 28 June 2004, DFID contributed to the provision of qualified personnel to the Coalition Provisional Authority (CPA) to support its work towards the effective reconstruction of Iraq. About £28 million was spent on this programme, and related security costs.

8. In the CPA headquarters in Baghdad, DFID provided 24 personnel. The posts included the CPA Director of Operations, and advisers to the Ministries of Finance, Municipalities and Public Works, Trade, Industry and Minerals, and Planning and Development Co-operation. DFID advisers to the CPA also worked on food security, gender and migration issues.

9. In southern Iraq, DFID provided over 40 technical experts to the regional office of the CPA in Basra between October 2003 and June 2004. Key subject areas included infrastructure services (power, fuel and water), health, education, social policy and welfare, agriculture and transport. Advisers worked closely with senior provincial officials from the four southern governorates over this period. This work enabled DFID to develop sound local working relations early on in the reconstruction process and to deepen its understanding of the problems facing some of the poorest areas of Iraq.

(c) DFID programme in southern Iraq

10. In addition to the deployment of DFID staff and consultants to the CPA in southern Iraq, DFID's main priority in the south prior to the handover of power to the IIG was the restoration of essential infrastructure. This work included an Emergency Infrastructure Programme focusing on the reinstatement of infrastructure for power, fuel, and water supplies, as well as sewerage systems; and other projects focused on the refurbishment of public sector buildings. The majority of this work has now been completed. It cost US$100 million, of which US$ 66 million was met from the Development Fund for Iraq and US$34 million by DFID. The programme was managed in close collaboration with the Iraqis and UK forces. It helped to stabilise infrastructure in the south and make some improvements before the arrival of larger investments from the US Supplemental and, in the longer term, Iraq's own budget and the private sector.

11. The longer-term challenges to reducing the high levels of poverty in the south are to promote economic recovery and to build political and other links between the south and the centre. A priority will be to strengthen Iraqi capacity to ensure that the flows of financial resources coming into the region over the next two years are used well and are targeted at sustainable and inclusive economic growth. DFID has agreed a new capacity building programme for the four governorates in southern Iraq, worth £20.5 million over two years. The programme will help the southern governorates to plan and manage reconstruction funding. The implementation of this programme in the Governorates of Al Muthanna, Dhi Qar, and Maysan is currently being hindered by the poor security situation. The programme is continuing in these areas through management from Basra and day visits to the other three governorates. DFID is also financing (over a six month period from July 2004) a £16.5 million programme to assist employment generation and to provide a facility to deal with potential critical failures in essential services.

12. Other DFID support in the south includes the development an effective media through a £6.7 million project being undertaken by the BBC World Service Trust; and a one-year project to support de-mining. Some of DFID's national programme work will also benefit the south, including the funds for political participation and civil society capacity building.

(d) The "National Programme"

13. DFID is working at the national level in Iraq to support the development of public policies and reforms which benefit the poor and strengthen public administration, based on the three Country Assistance Plan objectives:

(i) Promote rapid, sustainable and equitable economic growth

14. DFID has a £3 million programme to assist the IIG in the design and implementation of essential economic reform programmes, which will also help Iraq in its negotiations for a debt-reduction package. DFID has also provided over £3 million towards an IMF technical assistance package for Iraq. This support has provided training for Iraqi officials in a wide range of public financial management areas. These programmes have helped to facilitate agreement to an IMF Emergency Post Conflict programme, which is an important precursor to debt reduction negotiations in the Paris Club. DFID has also provided around £8.5 million towards an International Finance Corporation (IFC) finance facility for small and medium enterprises in Iraq. This facility aims to strengthen the capacity of Iraqi financial institutions and provide much needed finance to the Iraqi private sector.

(ii) Encourage effective and accountable governance

15. DFID's £3 million Emergency Public Administration Programme is providing technical support to the Iraqi Prime Minister's Office, other government institutions and three ministries which are key for reconstruction: Finance, Municipalities and Public Works, and Planning and Development Co-operation. The project aims to build the foundations for a modern professional and accountable civil service. DFID is also exploring how we can help strengthen the capacity of the Ministry of Labour and Social Affairs. In the justice sector, a £2 million project is providing training to the judiciary, prosecution and bar association; and a £1 million project with the Institute of War and Peace Reporting is providing training for journalists to help develop independent and effective news media.

(iii) Promote social and political cohesion and stability

16. DFID has established a Political Participation Fund (PPF) which aims to increase opportunities for participation by Iraqi citizens in the political process; and a Civil Society Support Fund (CSSF) which focuses on strengthening the capacity of Iraqi civil society organisations. Each fund, worth £5 million includes elements to promote gender equity.

(e) Multilateral Assistance: IRFFI

17. The International Reconstruction Fund Facility for Iraq (IRFFI), was set up in December 2003 by the United Nations and World Bank. It provides bilateral donors with a means of channelling their contributions towards Iraq's reconstruction priorities in a co-ordinated manner, and reduces the transaction costs to the Iraqi Government of dealing with many different donors with their own individual priorities and procedures.

18. In March 2004, DFID made a £70 million contribution to IRFFI: £30 million to the trust fund managed by the United Nations, and £40 million to the World Bank's. For the UN, we stipulated that our contribution should go towards DFID priority sectors, including primary and secondary education, health, water and sanitation, electricity supply, refugees and governance. In September 2004, in response to an urgent request, we allocated US$10 million of our £30 million contribution specifically to meet security costs for the Independent Electoral Commission of Iraq. Our contribution to the World Bank's fund is not earmarked to specific sectors or projects. A decision on any further contributions will be based on an assessment of progress made, requirements for 2005 and resources available in DFID's Iraq programme.

19. Overall, donors have committed just over US$1 billion to IRFFI: US$400 million to the World Bank's trust fund and US$600 million to the UN's. The biggest contributors are Japan (US$490 million), European Commission (US$192 million), UK (US$120 million) and Canada (US$75 million). A full list of donors and their contributions is attached at annex 2.

20. The UN has approved projects worth a total of US$377 million, covering all regions of Iraq in sectors including health, education, water and sanitation, and infrastructure. Implementation has begun on several of them. The UN's pipeline of projects under preparation will absorb all the finance currently available. In addition to IRFFI-funded projects, the UN is continuing to implement projects for which finance was provided during 2003 under the emergency appeals for Iraq. Over US$100 million was disbursed in the first half of 2004, including emergency support for people affected by the fighting in cities such as Fallujah and Najaf.

21. Two World Bank projects are currently underway: over 600 Iraqi officials have received training; and approximately 40,000 textbooks have been delivered. Projects are under preparation in education, urban infrastructure, water and sanitation, health and private sector development.

22. The lack of an international presence in Iraq of either the UN (until very recently) or the World Bank has inevitably slowed project identification, approval and implementation, and has inhibited the development of normal contacts with the Iraqi government. The UN and World Bank have made considerable efforts to overcome these difficulties through remote-working links with their Iraqi national staff, focusing on work that can be implemented by Iraqis and the private sector, using teleconferencing, and hosting coordination and planning meetings in Amman. Pending the return of international staff, DFID has contracted liaison officers to represent the UN and the World Bank in Baghdad.

23. DFID plays an active role in the IRFFI Donor Committee which provides strategic supervision of the funds. Its next meeting is in Tokyo on 13-14 October where discussion will focus on the progress of project implementation, and co-ordination with Iraqi Ministries. The meeting will also provide an opportunity for outreach to other potential donors to Iraq, and for the presentation of Iraq's development priorities through its new National Development Strategy.

3. OTHER DONORS

24. At the Madrid Donors Conference for Iraq in October 2003, more than US$32 billion was pledged in grants and concessional loans, as well as trade credits and assistance in kind. The largest pledges were from the USA (US$18.4 billion in grants), Japan (US$1.5 billion in grants and $3.5 billion in loans), the World Bank (US$3 to 5 billion), IMF (US$2.5 billion) and Kuwait and Saudi Arabia ($500 million each). A full list of pledges is attached at annex 3.

25. The principal US instrument for assistance to Iraq is its US$18.4 billion Iraq Relief and Reconstruction Fund (IRRF), which was approved as an Emergency Supplemental Appropriation in November 2003. This funding is being managed mainly through the Project and Contracting Office (PCO) in the US Embassy in Baghdad. The main sectors for expenditure are security and law enforcement, justice, electricity, oil production, and water and sanitation. A recent reprioritisation exercise is expected to shift some expenditure away from some longer term electricity and water projects towards more immediate needs of security, oil production and employment generation.

26. Japanese grant assistance is split between multilateral contributions of US$500 million (US$490 million to IRFFI and US$10 million to the International Finance Corporation small business facility) and bilateral funding. US$517 million of the latter has so far been programmed for the power sector, hospital rehabilitation, water treatment plant, and vehicles for the police, fire service and sanitation services. Japan is also channelling US$35 million through NGOs. Work is beginning on programming the US$3.5 billion which will be available in concessional loans from next year.

27. The European Commission, Canada and a number of smaller donors are channelling most or all of their funding through IRFFI.

4. CO -ORDINATION ISSUES

(a) Whitehall Co-ordination

28. Progress in Iraq requires parallel progress on security, the political process and reconstruction of the economy and state institutions. DFID works closely with other Government departments to ensure coherent UK policy and approach. The Secretary of State for International Development attends regular Ministerial Iraq co-ordination meetings. DFID officials participate in weekly Whitehall meetings on strategy, security and day-to-day practical issues, and daily contacts take place with other government departments at working level. An example is the regular co-ordination which takes place between DFID, FCO and HM Treasury economics specialists on economic reform and debt reduction issues. In Iraq the DFID offices are an integral part of the Embassy in Baghdad and the British Embassy Office Basra. DFID staff in Iraq work closely with their FCO, MOD and military counterparts.

29. The MOD's Quick Impact Projects (QIPs) has also played an important role in reconstruction in southern Iraq. MND(SE)'s ability to operate quickly and effectively on the ground has contributed to stabilising security in the region.

(b) Global Conflict Prevention Pool (GCPP)

29. The FCO, MOD and DFID have pooled human and financial resources, to develop and implement a Conflict Prevention strategy in Iraq. The Iraq GCPP programme, with a budget of £19 million in 2004-05, is managed by FCO and focuses on three key objectives:

— Building the capacity of the Iraqi government and civil society to carry out conflict prevention and resolution initiatives;

— Preventing further polarisation and reducing underlying tensions between different elements of Iraqi society; and

— Building the capacity of the security sector, with special emphasis on the police and prisons.

30. Security sector reform has been the emphasis of much of GCPP's work, focusing on police and prison service training, mentoring and monitoring. Other activities include technical support to the Human Rights and Foreign Affairs Ministries, interfaith activities, media, civic education, and training on a variety of conflict resolution priorities. A devolved fund has also been provided to the British Embassy in Baghdad to undertake small-scale, quick impact conflict resolution projects. A summary of GCPP activity in Iraq is at annex 4.

(c) Co-ordination with the Iraqi Government

31. The nature of DFID's work, much of which is aimed at strengthening Iraqi capacity to manage the reconstruction effort, means that good and close working relations with the Iraqi Government are essential. The present Secretary of State for International Development has visited Iraq three times for consultations with Iraqi ministers and senior officials, as well as, before 28 June 2004, with senior CPA officials.

32. DFID has built its working relations with Iraqi ministers and officials since the handover of power in June 2004, through DFID's offices in Baghdad and Basra and through regular visits by UK-based staff.

(d) Donor Co-ordination

33. DFID plays an active role in promoting donor co-ordination on the ground in Baghdad and in the south. Priorities are to ensure strong Iraqi leadership of the reconstruction effort, and to encourage donors to work together coherently with the Iraqi authorities. DFID is providing advisory support to the Iraqi Ministry of Planning and Development Cooperation (MoPDC) to develop the capacity to take a strategic approach towards donor support to Iraq.

34. Two co-ordination mechanisms have been set up to maintain a strategic overview of international support:

Iraqi Strategic Review Board

The Council for International Co-ordination

35. In addition to Iraqi co-ordination mechanisms, and the IRFFI Donor Committee, a "Core Group" of donors pledging $150 million or more at Madrid holds monthly telephone conferences with the MoPDC to discuss reconstruction issues. DFID also maintains bilateral contacts with a range of other donors.

5. SECURITY ISSUES

(a) Effects of insecurity

36. The security situation in Iraq has been difficult since the end of major hostilities in April 2003. Managing reconstruction programmes is a continuing challenge. The inability of international donors and construction companies to move around and operate freely in the country is a particular constraint. Costs are inevitably likely to be higher than in normal situations, and the risks of delay greater. In some cases, infrastructure rehabilitation has been set back by sabotage or theft. These problems have affected all international donors in Iraq. As noted above, the UN has only a small international staff presence in Iraq, and the World Bank currently has none. Many bilateral donors are also absent or have minimal representation.

(b) DFID/HMG response and staff protection

37. Staff security is the top priority for DFID and it takes very seriously its duty of care to its employees working in Iraq. Every effort is taken to ensure their health and safety, and to provide a secure environment in which to work. DFID works very closely with FCO to ensure all HMG staff are provided the same level of protection. Resources are shared to avoid duplication of effort and reduce costs. The extensive measures that are taken include the provision of pre-posting hostile environment training and briefing, body armour, armoured transport, communications equipment and armed protection. Staff are informed of security procedures upon arrival in Iraq and subsequently of any changes. Security procedures are under constant review.

38. DFID and FCO work together to provide armed protection to HMG staff working in Iraq. This is essential if DFID employees are to carry out their work with ministries and on projects. A private security firm, Control Risks Group (CRG) which also provides intelligence and security advice, provides this service. A defensive "armed response" is the very last resort.

39. All DFID employees visiting or working in Iraq are volunteers and are free to leave at any time. Counselling is available for DFID employees and their families at any time. We encourage our contractors to follow the same security procedures as our own staff and offer help in meeting their duty of care responsibilities, such as providing armoured transport, armed protection and access to telephone counselling. The extent of assistance needed by contractors depends on the capacity of the organisation, so for solo consultants we provide essentially the same level of support as we do for our own staff. DFID has offered NGOs which we are supporting additional finance for increased security provisions if needed.

(c) "Humanitarian Space" issues in Iraq

40. DFID shares the concern expressed by many NGOs over the increasing incidence of humanitarian agencies being targeted by violence in Iraq. Attacks on humanitarian staff have risen to levels that even agencies used to managing serious risks find difficult. For humanitarian staff, security normally derives from the acceptance by all parts of the local community that they are acting impartially and independently of governments and combatant forces. In Iraq, humanitarian agencies, including UN agencies and the ICRC, have struggled to gain that acceptance in the face of forces determined to create instability and disrupt reconstruction.

41. DFID generally discourages military involvement in the direct delivery of humanitarian assistance other than under exceptional circumstances, and any association between military forces and humanitarian organisations needs to be handled sensitively in order to avoid a blurring of identities, which may render humanitarian workers more vulnerable to attack. In Iraq, the UK military has been provided with resources to undertake quick impact projects (QIPs) to address real and immediate needs and contribute to providing a stable environment in which political, social and economic development can take root. QIPs have played an important role in the military's presence in southern Iraq: in order to maintain "humanitarian space" it is important that the military remains in uniform when implementing them.

42. DFID contributed to the consultation process prior to the publication of "Guidance for the use of Military and Civil Defence Assets in Complex Emergencies" (also known as "The Oslo Guidelines for Complex Emergencies"). DFID is also involved in a wide range of military training, academic courses and exercises in addition to consultation on military doctrine for crisis response operations. We use these opportunities to highlight appropriate roles for the military in emergencies.

6. PROGRESS IN IRAQ SINCE MAY 2003

43. The Iraqi Interim Government (IIG) assumed authority of the country ahead of schedule on 28 June 2004. Of the 31 ministers, 6 are women and 5 are Kurds. The Transitional Administrative Law (TAL), signed by the Iraqi Governing Council on 8 March, provides a temporary legal framework for the governance of Iraq until the agreement of a new constitution in 2005. The TAL confirms the equality of all Iraqis and safeguards fundamental human rights. It sets out the processes for elections by January 2005, the adoption of a new constitution, and further elections under that constitution. A 100-member Interim National Council was selected in August; its role is to hold the IIG to account until elections take place. The IIG remains committed to the agreed timetable for elections to be held in January 2005.

44. Since May 2003, the foundations of a market economy have been laid. The new Iraqi Dinar has been introduced and its value against other currencies has remained stable. The Central Bank of Iraq is independent of Government and has kept inflation under control—only 5.6% in the first 6 months of 2004. The tax system has been simplified: income tax at 15 per cent, and a 5% reconstruction levy on most imports. Iraq's economy is expected to grow by over 50% in 2004, mainly due to higher oil production and prices, and may rise by a further 17% in 2005. An IMF programme has been agreed and work is underway towards a debt reduction deal.

45. Unemployment is still high but steps are being taken to create new jobs. The Iraqi National Employment Programme and US reconstruction programmes have created almost 500,000 jobs. In southern Iraq, DFID has set up a project which will generate up to 1.75 million days of employment, and has contributed £1million towards a US$30 million job creation programme managed by UNDP.

46. Oil production has been below target, but still remains at more than 2 million barrels per day (bpd). Production is on track for reaching 3 million bpd by early 2005, security permitting.

47. Water and sanitation have been improved through extensive programmes to rehabilitate a system suffering from years of under-investment and neglect. Estimates suggest that immediately after the conflict, 60 per cent of urban and 30 per cent of rural populations had access to safe water. Considerable work has taken place across Iraq to improve the quantity, quality and reliability of water supplies, which are now better than before the conflict. In the south, the former CPA estimated that coverage increased by 10-15 per cent from May 2003 to July 2004. There are still shortages however, particularly in the south, and the UN continues to operate water tankers and provide drinking water to vulnerable groups and inhabitants of rural areas.

48. Prior to the conflict none of the sewage treatment plants in Iraq were operational and raw sewage was being discharged into the rivers and waterways. Since then investment has brought existing pumping stations back into service and repairs have been made to broken equipment. A major wastewater treatment plant in Baghdad began operating on May 19, 2004: the first major plant in the country to operate in over 12 years. Major investment is planned to extend and improve water and sanitation for the large parts of the population still lacking these basic services.

49. The health service suffered badly from neglect and mismanagement under Saddam Hussein. Since the conflict, the Iraqi Ministry of Health (MoH) has been reformed and, with international assistance, is increasingly able to deliver essential health care. MoH has identified priority areas such as primary health care, disease surveillance, pharmaceutical policy and professional training. Iraq's 240 hospitals and 1,200 primary health centres are functioning. Routine vaccination for children and mothers restarted in mid-2003: so far 30 million doses have been delivered. National polio and measles vaccination programmes were completed in September 2004. However, much work remains to be done on maintaining reliable drugs supplies, coordinating funding, and implementing the MoH's plans. Security problems continue to restrict access to health facilities for both the general population and health workers.

50. The education system is functioning. Iraq has 6 million pupils and 300,000 teachers in over 20,000 schools. In Higher Education institutions there are 350,000 students and 50,000 employees. USAID, UN agencies and NGOs are undertaking programmes in teacher training and school refurbishment. 70 million new textbooks have already been distributed. The World Bank plans to spend $100 million for emergency education projects: a $40 million textbooks project is underway, and a $60 million school rehabilitation project is expected to begin soon. The UN is also undertaking school rehabilitation programmes.

51. Long-term rehabilitation of the energy sector continues, although security problems have slowed progress. Power generation is now averaging 4,750 MW, compared with the pre-conflict level of 4,400 MW. Most of Iraq is receiving between 9 and 15 hours of electricity daily, which should improve as demand reduces in the cooler months. The Interim Iraqi Government has set a target of 6,000 MW by the end of 2004. A newly completed rehabilitation of the power grid is ensuring more equitable distribution across Iraq.

52. The creation of a free and independent media is an essential part of Iraq's transition to an open and democratic society. Since the fall of Saddam Hussein's regime, new newspapers have flourished. DFID is spending about £7 million to support media development, primarily through the BBC World Service Trust and the Institute for War and Peace Reporting.

53. After the 2003 conflict an independent High Judicial Council was established, judges and prosecutors were vetted, and criminal defendants were guaranteed certain rights. The Iraqi Special Tribunal, which will try members of the former regime suspected of crimes against humanity, has been established. The Human Rights Ministry now has 130 staff, and two lawyers have been appointed as onsite monitors at the Abu Ghraib prison. DFID is providing £2 million support to the sector, focusing on training for the judiciary, prosecution service and the bar.

54. Key bridges have been reconstructed, new rail tracks have been laid, and ports are being rehabilitated and opened to commercial traffic. Baghdad International Airport (BIAP) is now processing an average of 45 non-military arrivals and departures a day. Iraqi Airways has recommenced commercial flights after being grounded for 14 years. Telecommunications have improved significantly with a 49 per cent increase in telephone subscribers since the conflict. Internet access has become more widespread, the number of subscribers increasing from around 11,000 pre-conflict, to almost 80,000 in August this year.

55. According to the United Nations High Commission for Refugees (UNHCR) there were about 400,000 Iraqi refugees around the world in early 2002. UNHCR is providing assistance for voluntary returns, and so far 14,000 have returned to Iraq under this programme. Many more Iraqis have returned to their country without assistance. The number of spontaneous returns is not yet clear; estimates range from 15,000 to 50,000. We are pressing the UNHCR for a more accurate figure.

October 2004



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