Memorandum from the Ministry of Defence
PRE-VISIT BRIEF
Asterisks denote that part of the evidence which,
for security reasons, has not been reported at the request of
the Ministry of Defence and with the agreement of the Committee.
OPERATIONAL OVERVIEW
1. United Kingdom forces continued their
deployment in Iraq under the mandate of United Nations Security
Council Resolution (UNSCR) 1723, which provided renewed authority
for the Multi-National Force—Iraq (MNF-I) to operate in
Iraq until December 2007. The MNF-I is led by the United States
and divides Iraq into six sectors of divisional command and control.
The UK's area of responsibility covers the Multi-National Division-South
East (MND-SE), which incorporates four of Iraq's 18 provinces
(Al Muthanna; Maysan; Dhi Qar and Basra). MND-SE is currently
commanded by Major General Jonathan Shaw.
2. As one of 26 nations contributing to
MNF-I, UK forces are the second largest contributor of international
military assistance behind the United States, with a current force
level of around 5,500. The majority of troops are based in MND-SE,
although the UK also provides officers to other key coalition
appointments, such as the Deputy Commander MNF-I, currently Lieutenant
General Graeme Lamb.
3. Five nations are deployed alongside the
UK in MND-SE at present—Australia, Czech Republic, Denmark,
Lithuania, and Romania. Both Japan and Italy ended their contributions
to military ground operations in MND(SE) this year.
4. The 26 nations together contribute approximately
160,000 troops to the MNF-I, with the US the largest contributor
with approximately 143,000 troops. Most troop contributing nations
are subject to political mandates for their deployments. Individual
national mandates are often linked to their support of UNSCR 1723.
Details of the troop contributing nations are as follows:
| Albania | Armenia
| Australia | Azerbaijan |
| Bosnia-Herzegovina | Bulgaria
| Czech Republic | Denmark |
| El Salvador | Estonia | Georgia
| Japan |
| Kazakhstan | Latvia | Lithuania
| Macedonia |
| Moldova | Mongolia | Poland
| Romania |
| Singapore | Slovakia | South Korea
| Ukraine |
| UK | US | |
|
5. In line with the Prime Minister's February announcement
this year, the number of UK forces reduced from around 7,100 to
the current level of around 5,500. We are also reposturing our
forces, and over the last few months have transferred three fixed
bases to the Iraqi Army—The Shatt al Arab Hotel, the Old
State Building and the Shaibah Logistics Base. It remains our
aim to move all our forces to a single fixed base at Basra Air
Station and hand back the Basra Palace site to the Iraqi authorities
in late summer, depending on conditions and progress. This re-posturing
has helped free up British personnel from force protection and
allowed logistical efficiencies, all of which enabling us to concentrate
on training and mentoring the ISF.
6. The coalition's aim remains to protect Iraqis and
their efforts at building democratic structures, with the priority
on enabling the Iraqis to take responsibility for their own security.
The three main tasks for coalition forces in MND(SE) are:
— Training and support to the Iraqi Security Forces
(ISF).
— Operations in support of the Iraqi Department
of Border Enforcement.
— Targeted Strike operations in the pursuit of a
secure environment.
7. The lead UK unit in Iraq is 1 Mechanised Brigade,
which took over the command of UK forces on 1 June 2007. It s
commanded by Brigadier James Bashall. The major units are:
— 1 Mechanised Brigade Headquarters and Signal Squadron
(215 Signal Squadron Royal Signals)
— 2 Squadrons from the Household Cavalry Regiment
— The Kings Royal Hussars
— 2 Squadrons from the 2nd Royal Tank Regiment (2RTR)
— 1st Battalion Irish Guards
— 1 Company from the 1st Battalion The Royal Welsh
— 2nd Battalion The Royal Welsh
— 4th Battalion The Rifles
— 1st Regiment Royal Horse Artillery
— 1 Squadron from 23 Pioneer Regiment Royal Logistic
Corps
— 3 Logistic Support Regiment Royal Logistic Corps
— 1 Company from 6 Battalion Royal Electrical &
Mechanical Engineers
— Bravo (16) Close Medical Support Squadron,3 Close
Support Medical Regiment, Royal Army Medical Corps
— 158 Provost Company3rd Regiment Royal Military
Police
— 22 Battery, 32 Regiment Royal Artillery
— 34 Field Hospital Royal Army Medical Corps
SECURITY SITUATION
8. Despite recent tragic events involving the deaths
of British forces, and a number of security related incidents
across MND(SE), the security situation remains relatively quiet
compared to other parts of the country. However, Basra continues
to suffer from violence mainly between Shia groups, with the remainder
of other attacks aimed at coalition forces in MND(SE).
9. The security situation across the rest of Iraq varies
from province to province. In Baghdad and surrounding areas, violence
perpetrated by sectarian and insurgent groups remains a very serious
problem. Recent action by Iraqi and coalition forces as part of
the Baghdad security plan has led to a reduction in murders by
the militia death squads. But the terrorist groups continue to
use suicide bombings to inflame the sectarian divide, such as
the bombing in June of the al-Askari Mosque in Samarra. Outside
Baghdad and its environs—which account for around 80% of
the violence in Iraq—the security situation is better, particularly
in the north and south of the country.
10. The joint coalition/Iraqi Baghdad Security Plan called
Operation Fardh al Qanoon, started in February this year with
the intention of reducing sectarian violence in the capital and
surrounding provinces, in order to create the political breathing
space necessary for substantive progress on national reconciliation.
While the last of the US surge units have recently arrived in
Baghdad and it is still too early to judge the success of the
Plan, indications to date show some signs for encouragement. High
profile suicide attacks remain of deep concern, while levels of
other forms of sectarian violence have decreased and the ISF have
so far performed well. The commitment to date shown by the Iraqi
authorities in tackling this situation is very welcome. Importantly,
PM Maliki has pledged that political or sectarian interference
in the plan will not be tolerated. General Petraeus and Ambassador
Crocker are due to give their first report to the US authorities
on progress with the Operation in September.
FORCE PROTECTION
11. Force protection continues to be a priority. In response
to increasing attacks, all aspects of the protection of personnel
have been enhanced by continuous improvements in tactics and training,
supported by the development of improved body armour, new armoured
vehicles [* * * * * *] to reduce the risks
to UK personnel. UK forces in MND(SE) have achieved a number of
successes against those who seek to target coalition forces, the
ISF and Iraqi civilians. As part of this, they have detained individuals,
and recovered weapons, ammunition and other material.
POLITICAL PROCESS
12. In political terms, Iraq has come a long way in a
very short time. The Iraqi people have shown their passion and
commitment to a democratic future after decades of dictatorship
by voting in their millions in the first free national elections
and on Iraq's constitution. During 2006, in a process backed by
the UN, the first fully elected Government of Iraq—the Iraqi
National Unity Government—was formed of representatives
from across all the main elements of Iraqi society. The Prime
Minister—Nouri al Maliki—was nominated on 22 April
2006 and he announced his Government on 20 May 2006. Key appointments
are:
— President: Jalal Talabani
— Prime Minister: Nouri Al-Maliki
— Vice Presidents: Dr Tareq Al-Hashimi; Dr Adel
Abdul Mehdi
— Deputy Prime Ministers: Dr Salaam Zawba'i; Dr
Barham Saleh
— Minister for the Interior: Jawad al-Bolani
— Minister for Defence: General Abdel Qader Jassim
— Minister for National Security: Sherwan al-Waili
— Minister for Foreign Affairs: Hoshyar Zebari
— Minister for Finance: Bayan Jabr
— Minister for Oil: Dr Hussein Shahristani
PM Maliki's government of national unity represents all sectors
of the community and it is having to face very difficult problems,
not least the security in those provinces and cities plagued by
inter-communal and insurgent violence. It has repeatedly reiterated
the need to root out sectarianism.
13. It may take many years for a peaceful, democratic
Iraq to mature, but we and the international community must stand
alongside the Iraq people to help them develop their economy,
their infrastructure and democratic institutions.
14. Political progress is continually being demonstrated.
Seven of Iraq's eighteen provinces have been handed over to Iraqi
control, including three out of the four provinces which make
up the UK's area of operations in southern Iraq. These handovers
demonstrate Iraq's continuing progress in building up its political
institutions and, in partnership with the Coalition, its security
capacity. More provinces are expected to go through this process
in the coming months, as conditions permit, including Basra province
later in 2007.
TRANSITION
15. The UK is committed to Iraq for as long as the Iraqi
Government judge that the coalition is required to provide security
and to assist the Iraqi Security Forces. Progress will depend
not on reaching certain dates, but on achieving certain conditions
which will be based upon principals outlined by the Iraqi Joint
Committee to Transfer Security (JCTSR).
16. Since April 2006, each Iraqi province has been subjected
to comprehensive assessments of its readiness to be handed over
to Iraqi responsibility, with a working group considering the
readiness for handover and making recommendations accordingly
to the Iraqi PM and Coalition commanders. Assessments are made
against four well publicised conditions: the insurgents' threat
level; the Iraqi Security Forces' ability to take on the security
task; the capacity of provincial bodies to cope with the changed
security environment; and the posture and support available from
Coalition Forces. The transfer of responsibility will occur in
different provinces at different times according to when the conditions
are right to do so.
17. The UK plans for southern Iraq are part of, and consistent
with, Coalition plans and the Iraqi-led transition process. With
our Iraqi and Coalition partners we continue to be involved in
the assessment of the criteria for transfer in those provinces
for which we have responsibility.
18. Real progress is now being made. Seven of Iraq's
18 provinces have transferred to Iraqi control and more provinces
are expected to go through this process in the coming months as
conditions permit. This demonstrates Iraq's continuing progress
in building up its political institutions and, in partnership
with the Coalition, its security capacity. The Iraqi Government's
desire to accelerate its assumption of responsibility is very
encouraging and, in supporting the Iraqi Government, we are equally
keen to progress to the point at which the Iraqis can operate
without MNF assistance.
19. Of the seven provinces that have transitioned to
date, Al Muthanna and Dhi Qar in the UK's area of operations were
the first provinces to transfer to Iraqi control in July and September
2006 respectively. Najaf province in the neighbouring US area
of operations followed in December. Maysan province, also in the
UK's area of operations, transferred in mid-April 2007. The most
recent provinces to transfer to Iraqi control in, May 2007, were
three Kurdish provinces—Irbil, Suleymaniyah and Dohuk.
SECURITY SECTOR
REFORM
20. The coalition is undertaking one of the most ambitious
security sector reform programmes in modern times and has so far
trained and equipped over 353,000 members of the Iraqi Security
Forces (ISF)—over 194,000 in the Ministry of Interior (including
the police) and over 158,000 in the Ministry of Defence (including
the Army). Development of the ISF and Security Sector Reform (SSR)
is currently overseen by the Multi-national Security Transition
Command—Iraq (MNSTC-I), led by Lieutenant General James
Dubik. His deputy is the British Brigadier Stephen Gledhill. MOD
has overall responsibility for the delivery of Iraqi Security
Forces in MND(SE), including the police.
21. The UK is responsible for training and mentoring
the 10th Division of the Iraqi Army based in MND(SE). It is commanded
by Major General Habib. In January this year, 10 Division transferred
from coalition command to the Iraqi Ground Force Command based
in Baghdad. Eight of the other Divisions have also transferred,
leaving one remaining under coalition command which is due to
transfer in the next few months. 10 Division proved its professionalism
during Operation SINBAD and is now planning and leading security
operations in Basra City with minimal Coalition support. Two 10
Division battalions also performed well in Baghdad supporting
Operation Fardh al Qanoon.
22. We are also responsible for training and mentoring
the Iraqi Police Service (IPS) in MND(SE). The IPS has made encouraging
progress, particularly during Op SINBAD but we and the Iraqis
accept that corruption and criminality in the police force remain
a problem. We will continue to work with the Iraqi authorities
to remove corrupt and inefficient officers, but ultimately only
the Iraqi authorities are in a position to effect the required
organisational / cultural change. PM Maliki has now appointed
a new Provincial Director of Police for Basra, Major General Jalil.
On a practical level, and with the assistance of over 50 FCO-led
International Police Advisors, the MoD is helping to develop specific
niche training programmes in leadership, intelligence and internal
affairs that help build long-term capacity.
23. The UK has continued to play a lead role in developing
the Iraqi Navy (formerly the Iraqi Coastal Defence Force), providing
a team of around 30 UK personnel located at Umm Qasr Naval Base
south of Basra to train and mentor Iraqi naval and marine personnel,
as well as officer training at Britannia Royal Naval College Dartmouth
and HMS Collingwood in the UK. We have also provided seaborne
support to the Iraqi Navy and Marines during maritime security
operations in the northern Arabian Gulf.
24. Overall, emphasis continues on developing capability
rather than numbers, particularly in the key capabilities—leadership,
command and control, intelligence, logistics—which will
enable the Iraqis to take over control of security themselves.
This will take time and effort.
RECONSTRUCTION
25. Twenty years of under-investment and degradation
to Iraqi infrastructure will take time to rectify. Reconstruction
continues despite security problems and sabotage of power and
pipelines. Iraq has a stable economy; more people have access
to drinking water and sewerage systems; there has been a decline
in malaria, polio, measles, and mumps; independent media is flourishing
and some 2,500 NGOs are registered with the Government.
26. The UK has disbursed the £544 million pledged
at the Madrid Conference in 2003. Since then, the UK has pledged
an additional £200 million, including the £100 million
pledged by the Foreign Secretary at the Ministerial launch of
the International Compact for Iraq on 3 May 2007. This makes a
total UK commitment of £744 million. The funding has contributed
to international efforts which have achieved the following:
— Over 5,000 schools rehabilitated and a further
1,000 in progress. More than 100,000 primary and 40,000 secondary
teachers trained.
— Over five million children have received life-saving
vaccinations.
— 1,000 healthcare facilities have been rehabilitated
or equipped and more than 6,000 staff trained.
— 2,500 Iraqi NGOs are now registered with the Iraqi
government and trade unions.
— 217 Iraqi judges, 288 lawyers and 71 prosecutors
trained in human rights, international humanitarian law, and independence
of judiciary.
— Over 3,000 women and young people in the south
trained in business skills.
— Over 180 journalists trained in independent journalism
and feature writing.
— 250 newspapers and magazines have been launched.
New TV and radio stations have been set up.
27. The Iraqi Government has the lead on reconstruction
and development in Iraq. New systems for coordinating Iraqi and
donor funding are up and running, including Sector Working Groups
in rule of law, energy, education, and health. These groups are
led by Iraqi Ministries and are responsible for drawing up strategies
to support reconstruction in the medium to long term.
28. The Department for International Development (DFID)
is leading the UK's reconstruction programme in support of the
Iraqi Government's National Development Strategy (NDS). It plays
a full role in donor coordination, both inside Iraq through the
Baghdad Co-ordination Group, and internationally in the International
Reconstruction Fund Facility for Iraq (IRFFI) Donor Committee
and other less formal processes. More than $1.3 billion has been
paid by donors to IRFFI, consisting of UN and World Bank Trust
Funds to support reconstruction in Iraq, with DFID contributing
£70 million—£40 million to the World Bank Trust
Fund and £30 million to the United Nations Trust Fund.
29. DFID's programme focuses on:
— macro-economic reform—advising the Iraqi
Government on essential economic reforms which will unlock billions
of dollars of Iraq's revenues to finance their own reconstruction;
— developing effective and accountable institutions
at the centre of government and in the south;
— improving power and water supplies in the south
and advising the Government on a national power sector strategy;
and
— funding grass-roots projects to encourage poor
and vulnerable people to participate in the political process.
SECURITY INTERNMENT
IN IRAQ
30. UNSCR 1723 is the authority under which MNF-I commanders
are able to intern individuals in Iraq for imperative reasons
of security, as a means of protecting both their own forces and
the Iraqi people. Internment is a critical component of our approach
to ensuring the security and stability of Iraq, and to force protection.
31. The UK uses this power sparingly: we currently have
100 internees in the new purpose-built Divisional Internment Facility
(DIF) at the Contingency Operating Base in Basra, which opened
earlier this year. The number of internees held changes frequently,
but is published on the MOD website and updated monthly. There
are written orders covering all aspects of the running of the
DIF, and UK internment is monitored by the International Committee
of the Red Cross (ICRC). Relations with the ICRC are good, and
they intend to make their first visit to the new facility in the
coming weeks. The Iraqi Minister of Human Rights has also requested
to visit the facility in the near future.
32. Our policy is to hold only those deemed an imperative
threat to security, in accordance with UNSCR 1723 which continues
the powers that were set out in UNSCR 1546 (and the letters from
former Prime Minister Allawi and former US Secretary of State
Powell annexed thereto).
33. There is a structured review process in theatre for
all UK internees. Individuals held by the UK have their cases
reviewed on a monthly basis by the Divisional Internment Review
Committee (a UK committee comprising Military and Civilian personnel).
Individuals no longer considered to be a threat are released.
There is also a review process with Iraqi involvement on a less
frequent basis.
34. We transfer internees into the Iraqi criminal justice
system where there is a sufficiently strong evidential case. To
date five cases have concluded, with four acquittals and one conviction.
[* * * * * * *] Court liaison personnel
monitor progress on the cases of criminal detainees we have transferred
to the Central Criminal Court Iraq.
IRAN
35. Foreign forces in Iraq and Afghanistan continue to
be a source of concern to Tehran. The leadership believes that
US and UK forces in particular are part of a wider plan to encircle
and intimidate Iran; ultimately Tehran fears that the presence
of coalition and ISAF forces on its borders could be used as a
springboard for regime change.
36. We know that support from within Iran goes to groups
who are attacking our forces, and consider that any Iranian links
to armed groups in Iraq outside the political process, either
through supply of weapons, training or funding, are unacceptable.
In our assessment, some of the Improvised Explosive Devices that
are being used against our troops use technology that originates
from Iran.
37. The UK continues to press Iran to cut its links with
armed groups operating in Iraq, and to do more to improve border
security and fight terrorism. The Iranians are well aware of our
concerns about this, as Ministers and officials have raised Iranian
interference in Iraq with the Iranian authorities on many occasions
over the last year. We are also, through the Iraqi Government
and their engagement with the Iranian Government, aiming to send
the strong message that it is not in Iran's interests to have
a destabilised southern Iraq. On a practical level, UK forces
are continuing their training and mentoring of the Iraqi Department
of Border Enforcement (DBE), which has ultimate responsibility
for border issues.
2 July 2007
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