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Reconstructing Iraq: A Guide to the Issues

Author: Open Society Institute
Date: 2003
Size: 85 pages (610.3 kB)

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Summary

Post-war reconstruction and transition to self-governance in Iraq pose complex challenges and it seems clear that the US, rather than the United Nations (UN), will continue to play the dominant role. How do plans for Iraq diverge from past examples of post-conflict reconstruction? With the UN occupying little more than an endorsement role, can the US succeed? Compiled for the Open Society Institute and the United Nations Foundation, this paper provides concise background information on post-war reconstruction generally and on Iraq specifically.

In May 2003, the UN Security Council unanimously passed Resolution 1483 granting wide interim governance powers and control over Iraqi oil revenues to the US and its coalition partners and conferring on them the status of an occupying power. The Resolution authorises the US to control Iraq and its oil until there is an internationally recognised Iraqi government and the role of the UN in the reconstruction effort remains ambiguous.

Alongside legally conferring the status of occupier on the US and its partners, Resolution 1483 confers greater legitimacy upon US plans for the transformation of Iraq which might not ordinarily be permitted under provisions of humanitarian law relating to occupation. While the US intends to take the lead in rebuilding efforts, the roles of other agencies typically involved in relief and reconstruction remain unclear:

• The authorising and legitimising power that the UN may bring to reconstruction activities has remained largely untapped except in the humanitarian sphere, as has its expertise in the realms of coordination, building systems of law and reconciliation.
• Resolution 1483 provides for an independent Special Representative for Iraq who will carry the legitimacy of the UN member body and likely encourage greater donor support for reconstruction efforts.
• The International Financial Institutions stand to play an important role in rebuilding post-conflict Iraq although a leaked Treasury document envisioned a dominant role for private US contractors, mentioning the IMF and World Bank only in passing.
• The role of NGOs in Iraq may be less than in typical post-crisis settings and most work thus far has been contracted by the US to private vendors.

It remains unclear exactly how the US will deliver on President Bush’s promise of a free and democratic future for the people of Iraq. Many parties agree that the reconstruction effort and nation-building process should be a multilateral project backed by the UN.

• Past efforts demonstrate that the UN has been a central institution in the reconstruction of countries emerging from conflict and can play a constructive role in a wide range of range of humanitarian and transitional activities.
• The UN system possesses considerable expertise and its presence increases the perceived legitimacy of operations in the eyes of the international community as well as attracting additional funds through its convening power and leadership.
• The long-term staying power of the UN differentiates its development activities on the ground from the shorter-term commitments of others, including the US.
• Historically, nation-building attempts by outside powers are notable mainly for their bitter disappointments rather than their triumphs and efforts by the US are no exception.
• In the last century, democracy has been sustained for ten years or longer following the departure of US forces in only a quarter of cases where the US has intervened and attempted reconstruction.

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Source: Open Society Institute and the United Nations Foundation, 2003, ‘Reconstructing Iraq: A Guide to the Issues’, A joint publication of the Open Society Institute and the United Nations Foundation, New York
Author: Open Society Institute, http://www.soros.org/