United Nations S/2004/625
Security CouncilDistr.: General
5 August 2004
Original: English
Report of the Secretary-General pursuant to paragraph 24
of resolution 1483 (2003) and paragraph 12 of resolution
1511 (2003)
I. Introduction
1. The present report is the third submitted pursuant to paragraph 24 of Security
Council resolution 1483 (2003) and the second submitted pursuant to paragraph 12
of resolution 1511 (2003). The report summarizes the activities of the United
Nations Assistance Mission for Iraq (UNAMI) since my last report (S/2003/1149)
was issued, on 5 December 2003, particularly with regard to reconstruction,
development and humanitarian assistance activities. The report also summarizes
United Nations activities during the period under review in support of the political
transition process in Iraq.
II. Summary of Mission activities from 5 December 2003 to
13 August 2004
2. The United Nations Assistance Mission for Iraq was formally established by
resolution 1500 (2003) of 14 August 2003 for an initial period of 12 months. The
Mission started its operations on 1 September 2003. On 10 December 2003, I
appointed Ross Mountain as my Special Representative for Iraq and Head of
UNAMI ad interim. As a result of the attacks against the United Nations
headquarters building in Baghdad on 19 August and 22 September 2003 and the
overall deterioration of the security situation in Iraq, the United Nations has not
been able to carry out the tasks outlined in my first report pursuant to resolution
1483 (2003) (S/2003/715). Against this background, the Security Council in
resolution 1511 (2003) recognized that the United Nations should implement its
mandate under resolution 1483 (2003) “as circumstances permit”.
3. In my last report (S/2003/1149), I indicated that an incremental process had
begun to relocate our international staff temporarily outside Iraq. At that time, it was
impossible to forecast if and when circumstances would permit the full deployment
of UNAMI to Iraq. At the same time, prudent contingency planning was required to
enable the United Nations to respond as quickly as possible to requests for
assistance from the Iraqi people, as circumstances permitted.
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4. Since December 2003, the security environment in Iraq has not improved. I
therefore decided temporarily to establish UNAMI and other Iraq programme
activities in Cyprus (Larnaca), Jordan (Amman) and Kuwait. International staff are
currently allowed into Iraq only for emergency humanitarian relief operations,
security operations, or any other operations deemed essential. Despite these
constraints, we have remained fully committed to helping the Iraqi people to rebuild
their country. To this end, the United Nations system has continued to manage a
broad range of essential assistance activities in all parts of Iraq, not least through the
dedicated work on the ground of local United Nations staff and implementing
partners.
A. Security
5. Staff security remains the overriding constraint for all United Nations
activities in Iraq. During the period under review, the acting United Nations Security
Coordinator assessed the risks to United Nations personnel in Iraq as being in the
high to critical category. For the foreseeable future the United Nations will remain a
high-value, high-impact target for attack in Iraq. UNAMI and United Nations
agencies and programmes will therefore continue to minimize administrative
overheads and presence in Iraq by limiting their activities inside Iraq to the
essential. They will also make use of a system-wide pool of services based on a
limited number of common facilities in Iraq.
6. In the absence of a significant improvement in the overall security situation,
the United Nations must continue to incorporate into all plans and activities the
special measures set out in paragraph 84 of my last report. They include enhanced
minimum operating security standards for offices and residences, a strengthened
security management structure, additional training for all staff members, and a
requirement for protection by dedicated armed forces. All United Nations staff are
therefore required to undergo a three-day security awareness and information
training as a precondition for deployment to Iraq. Moreover, any long-term
deployment of international staff members to Iraq will require the prior development
of United Nations living and working facilities to the minimum operating security
standards requirements. It will also require security arrangements by the
multinational force and the United Nations in line with their respective
responsibilities. I accordingly welcome the provision, under paragraph 13 of
resolution 1546 (2004), for protection by a distinct entity under unified command of
the multinational force. Planning is now under way with a view to concluding a
formal agreement on protection, exchange of information, emergency medical
evacuation, and other assistance.
7. The United Nations lacks the integral resources for the early discharge of its
own security responsibilities in Iraq. Therefore, it will have to rely on the Interim
Government of Iraq and the multinational force to provide its security on the initial
re-entry of United Nations international staff. The assistance of Member States is
being sought for the establishment by UNAMI of dedicated security units to ensure
the internal security of United Nations premises and the personal protection of
United Nations personnel, and to coordinate protection arrangements with the
multinational force, in particular with regard to paragraph 13 of resolution 1546
(2004). Outside United Nations premises, the multinational force will, at least
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initially, serve as the effective guarantor of the overall security of the United
Nations personnel in Iraq.
B. Political and electoral activities
8. The political affairs section of UNAMI has actively monitored political issues
relevant to the transition process in Iraq. Through contacts with a wide range of
Iraqis both inside and outside the country, diplomatic and professional visitors, and
monitoring of the media, UNAMI has provided regular assessments of political
developments to United Nations Headquarters. The Mission has also provided
political analysis, staffing, translation and logistical support to political and electoral
missions from headquarters to the mission area. In July 2004, UNAMI started
providing support to the electoral process by providing logistic, communications,
information technology and voter education supplies. UNAMI also facilitated the
work by an international research group of polling and other information-gathering
exercises in Iraq to obtain empirical evidence of Iraqi attitudes towards the political
processes currently under way and the United Nations role.
C. Capacity-building, reconstruction, development and
humanitarian assistance
9. UNAMI has fostered a sustained effort by United Nations agencies and
programmes to support Iraqi ministries and civil society in the delivery of services
to the Iraqi people. UNAMI sees its role in this area as providing coordination and
support for United Nations organizations and agencies collectively to bring to bear
their specialized capabilities in the implementation of programmes. In responding to
approaches by ministers of the Interim Government, the United Nations is providing
training and related support including through regular contact with ministers and
senior ministry officials. It has promoted capacity-building within Iraqi ministries
and makes efforts to ensure that wherever possible Iraqi nationals are used in project
implementation, including as contractors, non-governmental organizations and other
partners. UNAMI also actively worked with the Ministry of Planning and
Development Cooperation in coordinating assistance with donors and non-
governmental organizations.
10. In February 2004, the country team, composed of all United Nations agencies,
offices, funds and programmes with activities on Iraq, developed a strategic
planning framework for all United Nations activities in Iraq. UNAMI coordinates
this framework to maximize safety, efficiency and the added value of its activities.
Under the framework there are 11 clusters1 informed by five cross-cutting themes —
security, human rights, gender, environment and employment generation. During the
period under review, UNAMI and the United Nations country team have undertaken
a wide range of capacity-building, reconstruction, development and humanitarian
assistance planning activities.
__________________
1 (1) Education and culture; (2) Health; (3) Water and sanitation; (4) Infrastructure and housing;
(5) Agriculture, water resources and environment; (6) Food security; (7) Mine action; (8)
Internally displaced persons and refugees; (9) Governance and civil society; (10) Poverty
reduction and human development; (11) Support to the electoral process.
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11. These activities include, inter alia, rehabilitation of schools and other facilities;
assistance in developing school curricula, school system reform and strengthened
vocational education; strengthening the capacity of the Ministry of Health in
restructuring the Iraqi health-care system and responding to emerging health needs;
immunization programmes; rehabilitation of water treatment plants, water pumps
and sewage purification plants; rehabilitation of power plants and upgrading
transmission systems; housing projects for selected vulnerable groups in urban
centres; supporting the Ministry of Trade’s public distribution system and
procurement and delivery of food items; capacity-building support to the National
Mine Action Authority; protection and material assistance to internally displaced
persons, returning Iraqi refugees and third-country refugees in Iraq; capacity-
building support for the Ministry of Displacement and Migration and other Iraqi
counterpart authorities; support for the creation of employment opportunities and
improvement of vocational training; capacity-building support to the Ministry of
Labour and Social Affairs.
12. In addition to the above activities, UNAMI, in cooperation with the Office of
the United Nations High Commissioner for Human Rights, provided capacity-
building support to Iraqi ministries and other institutions as well as professional and
community-based organizations in the area of governance and human rights. To this
end, UNAMI, among other activities, facilitated consultations between the Ministers
of Justice and Human Rights and international experts on judicial and legal reform
and human rights. On 4 June 2004, the Acting High Commissioner for Human
Rights submitted a report on the present situation of human rights in Iraq to the
Commission on Human Rights (E/CN.4/2005/4).
13. UNAMI under the Humanitarian Coordinator established an inter-agency,
multisectoral Emergency Response Working Group in April 2004. The Working
Group deals with humanitarian monitoring and early warning, contingency planning,
coordination, information management and advocacy. It also addresses funding and
civil-military cooperation issues. The identification of an Iraq-wide humanitarian
“focal point” network is under way. The focal points will collate humanitarian
information for verification, analysis and dissemination to the wider humanitarian
community.
14. UNAMI also developed a contingency plan for Iraq. The document focuses on
three potential scenarios and addresses strategic objectives and operational issues to
enhance emergency preparedness in Iraq in the coming three to six months. This
initiative is further consolidated by the engagement of the Special Representative of
the Secretary-General a.i./Humanitarian Coordinator with the Ministry of Planning
and Development Cooperation in devising support mechanisms to facilitate the
establishment of a national emergency response capacity.
D. Public information activities
15. In order to meet the challenges of “remote” humanitarian coordination and
information management from Amman and Kuwait, UNAMI re-established the
United Nations Iraq web site in both Arabic and English in February 2004
(www.uniraq.com). The facility provides a broad range of services including
humanitarian and rehabilitation activity databases, a map centre, Iraq media
monitoring, document archiving and discussion forums. In addition, UNAMI has
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published an information kit on United Nations activities in Iraq, a newsletter in
Arabic and English and regular reports to donors. UNAMI participated in the Inter-
Agency Working Group to develop a communications strategy for the work of the
United Nations in Iraq.
16. A public information campaign, particularly focusing on electoral matters and
voter education, will be devised and implemented in collaboration with the
Independent Electoral Commission of Iraq. The Department of Public Information
will assist UNAMI as required on all aspects of its public information needs, during
each phase of its redeployment.
E. Participation in the International Reconstruction Fund Facility
for Iraq
17. Following the October donor conference in Madrid, UNAMI worked with the
United Nations Development Group agencies and the World Bank to establish the
mechanisms for the International Reconstruction Fund Facility for Iraq to accept
funds and identify, appraise, approve, implement and monitor projects in the current
difficult security conditions. A donor committee, chaired by Japan, was established
and the Fund Facility has received pledges of more than $1 billion, with some $600
million pledged to the United Nations Development Group and the remaining $400
million to the World Bank. United Nations agencies have already programmed over
$350 million in 27 separate projects. In the first six months of 2004, $100 million
worth of activities were implemented. The first meeting of the International
Reconstruction Fund Facility for Iraq was held on 28 and 29 February 2004 in Abu
Dhabi and the second in Doha on 25 and 26 May 2004. A third meeting is to be held
in Tokyo in October 2004. In Doha the Fund Facility agreed to focus its activities on
the re-establishment of essential services, especially in the areas of education and
health. It also agreed to focus on infrastructure rehabilitation, job creation, poverty
reduction, governance, and capacity-building, including support for the transitional
authorities. United Nations projects are developed by United Nations clusters with
principal ministries and with the approval of the Ministry of Planning and
Development Cooperation and the Iraqi Strategic Review Board.
F. Facilities, logistics and budget
18. At the moment, the headquarters of UNAMI is located in Amman. Since July
2004 more than 50 international and local staff are operating from a minimum
operating security standards-compliant facility there. Other staff operate from a base
in Kuwait, which backstops operations in the lower and upper south regions of Iraq
and serves as the Mission’s administrative and logistics base. The facility in
Larnaca, Cyprus, was closed on 22 June 2004. United Nations agencies and
programmes also have international and local staff in their Iraq programmes in these
locations. In Baghdad, a United Nations liaison detachment has assisted visiting
United Nations missions to undertake work on political, electoral and
security/facility issues. A Headquarters management review team recommended that
the total number of staff in Amman, including UNAMI and United Nations agencies,
funds, offices and programmes with Iraq operations, be reduced.
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19. UNAMI is currently in the process of establishing bases of operations in
Baghdad, Basrah and Erbil for the mission and is undertaking minimum operating
security standards compliance work. In Basrah and Erbil, that compliance work is
under way. In Baghdad, UNAMI has identified office space to provide interim
accommodation for the Special Representative and his team from mid-August 2004
onwards. The Special Representative and his team will have to rely on the Interim
Government of Iraq and the multinational force for all life support during the initial
stages of re-entry to Iraq of United Nations international staff. A status-of-mission
agreement with the Interim Government and a memorandum of understanding with
the multinational force are being prepared to enable this support to be provided.
20. The United Nations humanitarian air service flight made available to the
Mission by the Royal Netherlands Air Force completed its tour of duty on 26 July
2004. Efforts are under way to find a replacement for this aircraft, both with
Member States and through commercial means.
21. By resolution 1546 (2004) the Security Council has expanded the role of
UNAMI and will increase its substantive activities in Iraq, particularly in the
electoral area. However, owing to the current restrictions on the deployment of
international United Nations staff to Iraq, at this stage, it is not envisaged that these
activities will require additional resources for the remainder of 2004 above the level
already approved by the General Assembly in section V of its resolution 58/272 of
23 December 2003. Should restrictions on deployment be eased significantly, and
additional resources be required, this will be reported to the General Assembly for
its consideration accordingly.
G. Other issues
22. UNAMI provided oversight for residual United Nations assets in Iraq. On
21 June 2004, the local authorities in Erbil started seizing vehicles and other
equipment belonging to UNAMI, UNDP, UNESCO, UN-Habitat, FAO and WHO.
They contended that since these had been purchased with funds under the oil-for-
food programme and donor contributions, they were not United Nations property.
My Special Representative a.i. protested against this action in a letter to the head of
local administration in Erbil and explained that under international law the United
Nations owned these vehicles and equipment. The local authorities have now
expanded the scope of the seizures, taking over all United Nations assets regardless
of their source of funding. I regret that the United Nations has so far not received a
response regarding this important issue.
23. Following a request from the Office of the United Nations High Commissioner
for Refugees and my Personal Representative in Lebanon, UNAMI facilitated the
repatriation of 30 Kurdish migrants from Lebanon to Iraq.
III. Summary of United Nations activities in support of the
political transition process in Iraq since 5 December 2003
24. Notwithstanding the constraints imposed by the temporary relocation of our
international staff from Iraq following the attacks of 19 August and 22 September
2003, the United Nations remained fully engaged in Iraq’s political transition
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process. From United Nations Headquarters and from the region, we intensified
high-level contacts with Iraqis and Governments around the world to discuss the
situation and the prospects for an orderly political transition, culminating in credible
elections. The fundamental building blocks of my position were the need for the
occupation to be brought to an end as quickly as possible and for the Iraqis to regain
control over their destiny. I therefore welcomed the political agreement reached
between the Coalition Provisional Authority and the Governing Council of Iraq on
15 November 2003, which set a date — 30 June 2004 — for the termination of the
occupation and the restoration of sovereignty to Iraq.
A. United Nations role in facilitating the political transition process
25. In a letter dated 30 December 2003, the President of the Governing Council of
Iraq requested the United Nations to help determine whether elections were feasible
by 30 June 2004, and, if not, to identify alternative means of forming an interim
Iraqi government to which sovereignty could be restored. Many Iraqi organizations
and personalities had sent similar requests. Against this backdrop, I convened a
meeting on 19 January 2004 with representatives of the Governing Council and the
Coalition Provisional Authority. At that meeting, strong assurances were given that
there was an indispensable substantive role for the United Nations in answering
those questions and that everything possible would be done to provide security for
the personnel to be engaged in this process. In response to the request for United
Nations assistance, I asked my Special Adviser, Lakhdar Brahimi, to help facilitate a
process of national dialogue and consensus-building among Iraqis through his good
offices. To this end, my Special Adviser undertook three missions to Iraq from
February to June 2004, during which he held wide-ranging consultations with a
broad spectrum of Iraqi society. Throughout this process, the Security Council was
kept fully informed of the efforts of my Special Adviser and of the progress
achieved.
26. During his first visit, from 6 to 13 February 2004, my Special Adviser and a
team from the Electoral Assistance Division of the Department of Political Affairs
of the Secretariat carried out a fact-finding mission in Iraq. The mission concluded
that credible elections could not be held by 30 June 2004, given that at least eight
months were needed after a legal and institutional framework had been established.
The 30 June 2004 deadline for the restoration of sovereignty to Iraq should
nevertheless be maintained. The United Nations was ready to assist in building
consensus among Iraqis on the specific powers, structure and composition of the
mechanism to which sovereignty could be restored. On 23 February 2004, I
submitted the report of the fact-finding mission to the Security Council
(S/2004/140).
27. Following a request dated 17 March 2004 from the President of the Governing
Council of Iraq, supported by the Coalition Provisional Authority, for United
Nations assistance in the formation of an interim Iraqi government and in the
preparations for direct elections to be held before the end of January 2005
(S/2004/225, annex II), I asked my Special Adviser and his team, as well as a team
from the Electoral Assistance Division, to undertake a second mission to Iraq from
26 March to 16 April 2004. The Security Council welcomed my decision
(S/PRST/2004/6). During his mission, my Special Adviser was able to develop
provisional ideas for the formation of the interim government. He also suggested the
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convening of a national conference after the restoration of sovereignty. The
conference would be composed of at least 1,000 people and would engage in a
genuine national dialogue so as to make the transition process as inclusive as
possible. On 27 April 2004, my Special Adviser briefed the Council on this mission.
The Security Council welcomed the ideas developed by my Special Adviser
(S/PRST/2004/11).
28. During his third visit, from 1 May to 2 June 2004, my Special Adviser helped
to facilitate a consultative process among Iraqis, resulting in an agreement on
transitional institutions and arrangements. This agreement included the structure and
composition of a sovereign and independent interim Iraqi government, which would
assume power by 30 June. Consensus was also reached on a chairman for the
committee which would prepare for the national conference. The formation on
1 June 2004 of the Interim Government of Iraq was facilitated by my Special
Adviser in close consultation with the Governing Council and the Coalition
Provisional Authority. On 7 June 2004, my Special Adviser briefed the Security
Council on his role during this phase of the transition process (S/2004/461, annex).
29. In a letter dated 8 June 2004, the Prime Minister designate, Ayad Allawi,
requested the United Nations to assist in the preparations for the convening of a
national conference which would represent all the colours of the Iraqi political
spectrum. I therefore dispatched a small team led by Jamal Benomar to Iraq to assist
the Preparatory Committee for the National Conference, chaired by Fouad
Massoum. A National Conference can provide an opportunity for Iraqi political
forces and civil society to engage in national dialogue and reconciliation and
broaden support for the political transition. To succeed, the Preparatory Committee
must be given sufficient time to make the Conference as inclusive as possible to
reflect Iraq’s diversity and range of political opinions. It is equally important to
ensure maximum transparency so as to allow the Iraqi people to keep themselves
fully informed of the nature, scope and purpose of the Conference. Furthermore, the
outcome of the Conference should be determined on the basis of a procedure agreed
through genuine consultations. The United Nations will continue to assist the
organizers of the Conference to achieve consensus among all stakeholders to these
ends.
30. In addition to his activities inside Iraq, my Special Adviser engaged with
countries of the region and regional initiatives. On 15 June 2004, he attended the
meeting of the Regional Initiative on Iraq held on the sidelines of the thirty-first
session of the Islamic Conference of Foreign Ministers. On 21 July 2004, he
attended the Sixth Conference of the Ministers for Foreign Affairs of the States
neighbouring Iraq. I welcome these regional initiatives intended to build trust and
cooperation between Iraq and its neighbours. The United Nations stands ready to
remain engaged in these processes.
B. Electoral assistance
31. Concurrently with the efforts of my Special Adviser, a team from the Electoral
Assistance Division of the Department of Political Affairs, led by Carina Perelli,
helped Iraqis to lay the essential groundwork for the holding of elections by January
2005. The Division first identified crucial electoral issues that would affect the
holding of and the schedule for elections, including the need for an electoral
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authority, the definition of an electoral system, the registration and the eligibility
criteria of voters. The Division further proposed that an Independent Electoral
Commission of Iraq be established with nine electoral commissioners, including a
non-voting, United Nations-appointed international member and a non-voting Chief
Electoral Officer as head of the electoral administration of the Commission.
Following acceptance of this proposal by the Governing Council of Iraq, the
Division provided assistance in the process of establishing the Commission and
facilitating the negotiation of the electoral modalities for the Transitional National
Assembly elections.
32. Under a plan designed and supervised by the Electoral Assistance Division, a
national nomination and selection process was conducted to identify candidates for
the posts of the electoral commissioners and the Chief Electoral Officer. The
Division monitored and audited the implementation of the exercise. Any Iraqi
person or association was able to submit nomination forms. The forms were
collected by a confidential and secure system using ballot boxes positioned in every
Governorate throughout Iraq and staffed by Coalition Provisional Authority staff.
The electoral team simultaneously monitored and audited the implementation of the
exercise by conducting audits and spot checks in Basrah, Hilla, Nasiryah, Baghdad,
Kirkuk and Erbil. The Division vetted all 1,874 nominations received and produced
a shortlist of 25 candidates for the eight Iraqi positions. Following an interview
process conducted by an international team of experts, a final list of 14 candidates
was reviewed by the Governing Council, which asked the Electoral Assistance
Division to make the final selection. On 31 May 2004, the Commissioners and Chief
Electoral Officer of the Independent Electoral Commission of Iraq were appointed
by the Administrator of the Coalition Provisional Authority in accordance with the
recommendations of the Division.
33. The Governing Council agreed on the definition of the competencies and role
of the Independent Electoral Commission of Iraq, which were promulgated on
31 May 2004 in an Order by the Coalition Provisional Authority creating the
electoral institution. The Governing Council also adopted an Electoral Law and a
Political Party Law, which were signed into effect on 7 June 2004. The Electoral
Law provided for a system of proportional representation, using the whole country
as a single national district.
34. From 20 June to 9 July 2004, the Electoral Assistance Division, with the
assistance of the Government of Mexico and the Federal Institute of Elections of
Mexico, undertook an intensive training programme with the Iraqi Electoral
Commissioners and Chief Electoral Officer. Training was provided by experts from
various national electoral bodies, including those of Mauritius, Yemen and Palestine,
as well as international experts. On 30 June 2004, the Chairman of the Electoral
Commission formally requested the United Nations to assist in establishing the
Commission as an institution and in the planning, preparation and organization of
the electoral process; the training of Iraqi electoral staff; the coordination of
international technical assistance for election purposes; and with guidance towards
ensuring an inclusive, transparent and credible election, in accordance with
international standards. The Electoral Assistance Division is currently in the process
of deploying electoral staff to Baghdad to assist in establishing the Commission.
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C. D. 10
Adoption of resolution 1546 (2004)
35. On 8 June 2004, the Security Council unanimously adopted resolution 1546
(2004), by which it endorsed the proposed timetable for Iraq’s political transition,
including the formation of a sovereign Interim Government of Iraq by 30 June 2004
and the convening of a national conference. The Council also endorsed the holding
no later than 31 January 2005 of direct democratic elections for a Transitional
National Assembly, which would have responsibility, inter alia, for forming a
Transitional Government and for drafting a permanent constitution for Iraq leading
to a constitutionally elected government by 31 December 2005.
36. In paragraph 7 of resolution 1546 (2004), the Security Council decided that in
implementing, as circumstances permit, their mandate to assist the Iraqi people and
government, my Special Representative and UNAMI, as requested by the
Government of Iraq, should play a leading role (a) to assist in the convening of a
national conference to select a Consultative Council, to provide advice on the
process for holding elections, and to promote national dialogue and consensus-
building on the drafting of a national constitution; and should also (b) advise the
Government in the development of effective civil and social services, contribute to
the coordination and delivery of reconstruction, development and humanitarian
assistance, promote the protection of human rights, national reconciliation, and
judicial and legal reform in order to strengthen the rule of law in Iraq, and advise
and assist the Government of Iraq on initial planning for the eventual conduct of a
comprehensive census.
37. I welcomed the Security Council’s unanimous adoption of resolution 1546
(2004), following a process of thorough consultations, including with the newly
formed Interim Government of Iraq. I was grateful to the sponsors for retaining the
caveat “as circumstances permit” with respect to the implementation of the United
Nations mandate as well as the formulation “as requested by the Government of
Iraq”. In doing so, Security Council members took into consideration my concerns
that the United Nations would need maximum flexibility in implementing in the new
mandate conferred upon it.
38. On 12 July 2004, I appointed Ashraf Jehangir Qazi as my new Special
Representative for Iraq and Head of UNAMI. I intend to deploy him, together with a
core team, to the mission area very soon, on the assumption that satisfactory
arrangements will be in place for the protection and accommodation of his mission.
In preparation for his deployment to Baghdad, my Special Representative had
several rounds of consultations at Headquarters and with Member States.
International Advisory and Monitoring Board
39. The International Advisory and Monitoring Board was constituted in October
2003 and first met in an organizational session on 5 December 2003 in New York,
and has met on a monthly basis since then. At the first session it was agreed that my
representative on the Board, Jean-Pierre Halbwachs, would chair it for a term not to
exceed one year. The Board oversees the audits conducted by international
accounting firms to ensure that the Development Fund for Iraq is used in a
transparent manner for the purposes set out in paragraph 14 of resolution 1483
(2003) and that oil export sales are made consistent with prevailing international

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market best practices. On 28 June 2004, the responsibility for decisions on the use
of the resources of the Development Fund for Iraq was handed over from the
Coalition Provisional Authority to the Interim Government of Iraq.
40. In a letter dated 30 June 2004, my representative on the International Advisory
and Monitoring Board for Iraq reported to me on the Board’s activities since its
inception. The report was submitted to the Security Council on 7 July 2004
(S/2004/542, annex). On 26 July 2004, he briefed the Security Council on this issue,
as called for in paragraph 24 of resolution 1483 (2003) and paragraph 12 of
resolution 1511 (2003). Currently, the Board is in the process of revising its terms of
reference in the light of resolution 1546 (2004).
IV. Observations
41. In resolution 1546 (2004) the Security Council gave the United Nations a
strong and clearly defined mandate. At the same time, the situation in Iraq remains a
major challenge both for the Iraqi people and for the international community as a
whole. I strongly believe that Iraqis have the necessary human potential and natural
resources to succeed in rebuilding their country. The United Nations stands ready to
do everything possible to support and contribute to an Iraqi-led and Iraqi-owned
process. To this end, the United Nations will concentrate its efforts and resources on
the essential tasks set forth in its mandate pursuant to resolution 1546 (2004), as
requested by the Government of Iraq, and with full consideration given to the tight
deadlines set out in the timeframe of Iraq’s transitional process.
42. The primary task of my Special Representative will be to assist the Iraqis in
implementing the proposed transitional timetable leading to the establishment of a
constitutionally elected Government by 31 December 2005. To this end, he will
work closely with the Iraqi authorities, political entities and civil society. He will
also consult with the countries of the region and the donor community in support of
Iraq’s political and economic reconstruction. My Special Representative will build
upon the outstanding efforts of his predecessor, the late Sergio Vieira de Mello, and
of my Special Adviser, as well as on the extensive work done by UNAMI to date. To
succeed, my Special Representative will need the full backing of a united Security
Council. In my first quarterly report pursuant to paragraph 30 of resolution 1546
(2004), which I intend to submit to the Council by 7 September 2004, I will
elaborate on the work of my Special Representative on the basis of his initial first-
hand experience and impressions.
43. Security will remain the primary obstacle and constraint. A qualitative
improvement in the overall security environment is an essential prerequisite for the
success of United Nations efforts in Iraq. The security and safety of all United
Nations staff will therefore remain the overarching guiding principle for all our
activities. This requires that our role and presence be in symmetry with the risks
involved and based on a careful assessment of what is feasible and advisable against
the evolving reality on the ground.
44. Until overall security conditions in Iraq improve significantly, UNAMI will
have to continue to operate primarily from the region to assist the Iraqi people in the
reconstruction of their country. A wide range of projects are already under way in
Iraq under UNAMI supervision and coordination. The dedication and courage of
United Nations Iraqi national staff and implementing partners in ensuring project
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implementation and delivery have been exemplary and will continue to sustain our
assistance work. In spite of the exceptionally challenging circumstances, UNAMI is
promoting operational and sustained contacts with Iraqi ministries to assist in
enhancing national capacity and is preparing for the resumption of in-country
activities when circumstances permit. UNAMI will now also provide the necessary
support to my Special Representative in his facilitation efforts in the political
transition process.
45. The mandate and activities of UNAMI will remain a key component of the
international community’s efforts to assist the Iraqi people in their hour of need. I
hope that UNAMI will be able to continue to rely on the full and continued support
of the donor community. In particular, UNAMI will require adequate resources and
satisfactory logistical and security arrangements to carry out its tasks. In the light of
the essential role that it is playing in supporting the transition process in Iraq, I
recommend that the mandate of UNAMI be extended for a further period of 12
months.
46. The end of occupation and the formal restoration of Iraqi sovereignty on
28 June 2004 marked a new phase in Iraq’s transitional process. The Interim
Government of Iraq now has an opportunity to reach out to all Iraqis and bring the
country together in a spirit of national unity and reconciliation to lay down the
foundations for the new Iraq. The National Conference now scheduled to begin on
15 August has an important role to play in this regard. Progress towards a peaceful
and stable Iraq can be achieved only through political solutions. The United Nations
is committed to working closely with the Iraqi authorities and the Iraqi people to
that end.
47. I would like to take this opportunity to pay special tribute to my Special
Adviser, Lakhdar Brahimi, to my Special Representative ad interim, Ross Mountain,
to the Director of the Electoral Assistance Division, Carina Perelli, and to each
member of their respective teams, for their dedication in their efforts to advance
Iraq’s political transition process, under exceptionally difficult circumstances.
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