Restraint Crucial to Preserve Hard-Won Stability, Achieve Durable Progress in Iraq, Top UN Official Tells Security Council, Amid US Air Strikes, Ongoing Gaza Conflict
Restraint is required to create the environment Iraq needs to consolidate hard-won stability and realize sustainable progress, the senior United Nations official in the country told the Security Council today, amidst United States air strikes in Iraqi territory on 2 February and the ongoing conflict in nearby Gaza.
“Messaging by strikes only serves to heighten tensions, to kill or injure people and to destroy property,” stressed Jeanine Hennis-Plasschaert, Special Representative of the Secretary-General and Head of the United Nations Assistance Mission for Iraq (UNAMI), as she briefed the Council on the Secretary-General’s reports concerning missing Kuwaiti and third-country nationals and missing Kuwaiti property (document S/2024/95) and concerning UNAMI (document S/2024/96).
If attacks originating from within and outside of Iraq’s borders continue, this will undo the country’s hard-won stability and other achievements made over the past 18 months, she said. An enabling environment is essential for Iraq to continue on its path of stability and progress, but such an environment requires restraint from all sides. While spotlighting certain progress — including the holding of local elections for the first time in 10 years on 18 December 2023 — she emphasized that climate-change-related events “combine to paint a rather bleak picture, in which existing fault lines come under increasing pressure”.
Also updating on events in the Kurdistan region and the Iraqi Government’s commitment to the issue of missing Kuwaiti and third-country nationals and missing Kuwaiti property, she nevertheless emphasized that swifter progress is needed. Further, the Government’s plans for sustainable progress, real reform and better living standards will become more difficult to realize with each passing year. Therefore reiterating the importance of ceasing attacks and creating an enabling environment, she stated: “It is quite simple: the enormous risks and potential devastating consequences of continued escalation cannot be overstated.”
In the discussion that followed, many Council members welcomed the holding of elections on 18 December 2023, as well as the Government’s efforts towards economic reform, improved access to public services and human rights. Many also urged support for Iraq and its people, with some emphasizing the stabilizing role that Iraq can play in the Middle East. However, members expressed concern that the ongoing situation in Gaza is spilling over into the wider region, urging all parties to de-escalate tensions.
Among them was Algeria’s representative — also speaking for Guyana, Mozambique and Sierra Leone — who said that such spillover risks undermining Iraq’s progress. Underscoring that Iraq is an important partner in the fight for regional development and stability in the Middle East, he expressed support for actions that advance progress and sustainable development in Iraq — provided they align with the priorities of that country’s Government and people.
External attempts to benefit from internecine fighting are “unacceptable”, said the representative of the Russian Federation, stating that — despite the Iraqi Government’s security successes — the situation on the ground remains tenuous. This is a result of attempts by Washington, D.C., to transform Iraq into a stage for geopolitical score-settling. “For Washington, international law simply does not exist,” he said, condemning the United States’ aggression that continues to “fan the flames of instability in an already volatile region”.
The representative of the United States, meanwhile, recalled that three of his country’s soldiers were killed, and dozens injured, by Iran-aligned militia groups on 28 January. “This is unacceptable, and attacks like it cannot continue,” he stressed. Armed groups operating outside State control challenge the Government’s authority and threaten to upend the stability that Iraqis have fought hard to achieve. Also noting that his country is the penholder for the upcoming renewal of UNAMI’s mandate, he looked forward to inclusive discussions on what such mandate might look like after the upcoming independent strategic review of the Mission.
On that, China’s representative urged that UNAMI’s mandate be streamlined. Further, noting that UNAMI has aided Iraq’s reconstruction and development since the Mission’s inception in 2003, he urged that UNAMI make timely adjustments given the evolving situation. Voicing concern over the escalating Palestinian-Israeli conflict — and the worrying risk of regional spillover — he called on major countries with influence to respect Iraq’s sovereignty and play a constructive, de-escalating role.
For his part, the representative of Iraq condemned violations of his country’s sovereignty by the United States, Türkiye and Iran under the pretext of “weak excuses”, which led to civilian casualties and property damage. Urging countries not to export their internal problems abroad, he stated that Baghdad called for an end to the war on Gaza, for humanitarian aid to enter and for a halt to the expanding radius of that conflict. He also detailed Government efforts in various spheres, including its cooperation with Kuwait on outstanding issues pertaining to missing persons.
“As long as this file remains outstanding, the wounds of the Kuwaiti people — the wounds of us all — will not be healed,” underscored Kuwait’s representative, urging Iraq to continue and accelerate cooperation in this context. Stressing the importance of the file — as well as the need to continue submitting periodic reports to the Council thereon — he added: “Halting any of these mechanisms that have proven to be successful and effective could undermine the extensive efforts that have been made since 1991.”
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THE SITUATION CONCERNING IRAQ
Briefing
JEANINE HENNIS-PLASSCHAERT, Special Representative of the Secretary-General and Head of the United Nations Assistance Mission for Iraq (UNAMI), told the Council that, if attacks originating from within and outside of Iraq’s borders continue, this will undo the country’s hard-won stability and other achievements made over the past 18 months. Pointing out that history’s ability to impact the present is “searingly true for the Middle East”, she said that various Iraqi armed groups acting outside of State control “reference, as a justification for their operations, a doctrine which transcends politics and State borders”. Other expressed motivations pertain specifically to Iraq; however, she underscored that an enabling environment is essential for Iraq to continue on its path of stability and progress. Further, such an environment requires restraint from all sides, and she stressed: “Messaging by strikes only serves to heighten tensions, to kill or injure people and to destroy property.”
While stating that Iraq and the wider region “remain on a knife-edge, with the tiniest miscalculation threatening a major conflagration”, she reported — on a more optimistic note — that Iraq held local elections for the first time in 10 years on 18 December 2023. This electoral process took place in a broadly peaceful and technically sound manner and marked another milestone in the Government’s efforts to break from past cycles of dysfunction. A challenge for future elections, however, will be to rally higher voter turnout and encourage eligible voters to register. Noting that around 60 per cent of registered voters did not cast ballots, and that millions of Iraqis did not even register to begin with, she stressed that building public trust — and, thus, encouraging participation in the democratic process — will entail continuous, hard work. Aside from that, she spotlighted another positive development — the Government’s continued strengthening of the national finance and banking sectors.
Detailing additional progress, she noted that “ambitious construction projects continue apace”, and that national incentives for development projects indicate the Government’s determination to see these visions “take concrete shape”. However, she said that water scarcity, desertification, forced migration, conflict over natural resources and extreme weather events in Iraq “combine to paint a rather bleak picture, in which existing fault lines come under increasing pressure”. Focus must now shift to mitigation and adaptation, including through the implementation of inclusive, peace-positive environmental management programmes; the modernization of irrigation infrastructure; and immediate steps to reduce oil reliance. She stressed: “Without moving from promises to action, opportunities may slip away – and fast.” Also highlighting existing feelings of exclusion and marginalization — which often lead to recurring cycles of conflict — she underlined the importance of the rule of law.
Turning to the Kurdistan region, she reported that parliamentary elections there have been held up and emphasized that continued postponements neither help already-low trust levels nor contribute to Iraq’s stability. She also underscored that, if stability is to be preserved, the Kurdistan region must receive funding to pay its civil servants their monthly salaries. On the issue of missing Kuwaiti and third-country nationals — and missing Kuwaiti property, including the national archives — she said: “The Government of Iraq remains undoubtedly committed to this file.” However, swifter progress is needed. She also said that the need for sustainable progress, for real reform and for better living standards will not decline. While many of the Government’s plans hold the key to meeting these needs, they will become more difficult to realize with each passing year and, thus, the time to act is now. Reiterating the importance of the need to cease attacks to create an enabling environment, she stated: “It is quite simple: the enormous risks and potential devastating consequences of continued escalation cannot be overstated.”
Statements
The representative of Malta stated that respect for Iraq’s sovereignty, territorial integrity and democratic process is essential for enhancing domestic and regional stability. All parties must act with restraint to avoid escalation. He also highlighted the risk of the situation in Gaza leading to regional spillover. On the domestic front, he hailed the governate council elections of 18 December as an important step for the democratic process, voicing hope that they will lead to new local governments able to deliver socioeconomic progress. Further welcoming preparations for elections in the Kurdistan region, he called for enhanced dialogue between Baghdad and Erbil. Stressing the need to promote social justice and equality and strengthening human rights, he expressed concern over grave violations against children and casualties caused by explosive remnants of war. He further reaffirmed support for the work of the Investigative Team to Promote Accountability for Crimes Committed by Da’esh/ISIL (UNITAD).
The representative of China welcomed the smooth completion of provincial council elections, as well as steps taken by the Iraqi Government towards economic reform, fighting against corruption and improving access to public services. He voiced hope that dialogue will continue between the Central Government and the Kurdistan regional government on outstanding issues to reach sustainable solutions. As well, he hoped Iraq and Kuwait would make headway on the issue of missing Kuwaiti and third-country nationals and missing Kuwaiti property. Since UNAMI’s inception in 2003, it has aided Iraq’s reconstruction and development, he said, calling for the Mission to make timely adjustments, given the evolving situation. Turning to UNAMI’s forthcoming independent strategic review, he called for its mandate to be streamlined. Finally, he voiced concern over the escalating Palestinian-Israeli conflict, and the worrying risk of regional spillover, calling on major countries with influence to respect Iraq’s sovereignty and play a constructive role in de-escalating the situation.
The representative of Japan, voicing concern over the steep uptick in attacks by non-State armed groups since October, echoed the Secretary-General’s call on all concerned parties to urgently act to de-escalate tensions. Japan welcomes the cooperation between Iraq and Kuwait on missing Kuwaiti and third-country nationals and missing Kuwaiti property. As well, she welcomed that the provincial council elections were held in an orderly manner last December as scheduled, and voiced hope that the Kurdistan Region’s parliamentary elections will occur according to the specified timeline. Underscoring the need to address humanitarian issues, she called for durable solutions to be found for internally displaced persons and returnees, as well as repatriating people from Al-Hol Camp. Turning to UNAMI’s forthcoming independent strategic review, she said that, given political and security developments in the country, it should provide a foundation on which the Council can deepen its discussion under this agenda item from a long-term perspective.
The representative of Algeria, also speaking for Guyana, Mozambique, and Sierra Leone, welcomed the 18 December 2023 elections, as well as the Government’s commitment to improving public services and carrying out important economic reforms. Further, Baghdad’s efforts to pursue economic diversification and social protection are encouraging. He also welcomed UNAMI’s support for Iraq’s constitutional and legislative processes; for strengthening governance and accountability; for internally displaced persons; and for enhancing the role of women and youth in peace- and nation-building initiatives. However, while commending the Iraqi security forces’ continued commitment to respond to threats posed by Da’esh, he expressed concern over both the group’s continued attacks and the increasing strikes against Iraq’s sovereign territory. The regional spillover of the ongoing situation in Gaza risks undermining Iraq’s progress, and he therefore called on all parties to exercise maximum restraint and take urgent steps to de-escalate tensions in the Middle East.
He went on to commend UNAMI’s efforts to promote human rights in Iraq, noting progress made by that country to uphold children’s rights. He expressed concern, however, over instances of child casualties due to explosive remnants of war, urging continued technical support to Iraq in this context. Further, addressing ongoing humanitarian needs and achieving durable solutions for internally displaced persons are critical for Iraq’s long-term stability and prosperity. Calling on the international community to continue supporting the people of Iraq, he underscored that Iraq is an important partner in the fight for regional development and stability in the Middle East. As such, he said that the States for whom he speaks will support actions that advance progress and sustainable development in Iraq that align with the priorities of that country’s Government and people.
The representative of the United Kingdom spotlighted UNAMI’s contribution to the progress being made by Iraq across the breadth of issues. “Iraq has the potential to play a strong stabilizing role in the region,” he pointed out. However, to do so, it is critical that its territory not be used by Iranian proxies to destabilize the region. Turning to Iran’s 15 January strike on Erbil, he urged that country to de-escalate tensions in the region and reiterated his country’s commitment to the Global Coalition against Da’esh — which operates within Iraq at the invitation of its Government. Commending Iraq’s holding of its first provincial elections for a decade, he encouraged all relevant actors to ensure free, fair and timely elections in the Kurdistan Region of Iraq without further delay. He also expressed hope that a sustainable outcome on the transfer of budget allocations from Baghdad to Erbil can be agreed and called on all relevant political parties to play a constructive role to support that.
The representative of France welcomed government efforts to implement reforms awaited by the Iraqi people, as well as the smooth conduct of provincial elections on 18 December — the first since 2013 — and the support provided by UNAMI. Calling for parliamentary elections in Iraqi Kurdistan as soon as possible, she further encouraged Iraq to continue its reforms, especially in diversifying its economy, fighting corruption and impunity, and protecting human rights. She urged Baghdad and Erbil to resume dialogue, particularly on sharing oil revenue and security issues, welcoming the essential role of UNAMI in providing assistance to Iraq in many areas, in full respect of its sovereignty. Voicing concern over the conflict in the Gaza Strip and its repercussions throughout the region, she reiterated condemnation of the December attack in the Kurdistan region, as well as the strike of 15 January in Erbil claimed by the Iranian Revolutionary Guards.
The representative of Switzerland highlighted the progress Iraq has made in reconstruction and reconciliation, supported by UNAMI. On the political front, an important step for democracy in the country was taken with the first provincial council elections in 10 years. The fact that these elections took place in an orderly fashion and that women reached the quota laid down by law is positive. At the same time, she expressed hope that the legislative elections in the Kurdistan region can be held quickly. Expressing concern about the growing impact of the hostilities in Gaza on the region, she pointed to a sharp increase in security incidents in Iraq over the last four months. To achieve a de-escalation, it is important that all parties show maximum restraint, she asserted, noting that Iraq’s sovereignty and territorial integrity must be respected. She further underscored that the promotion of the rule of law and respect for human rights and fundamental freedoms remain essential. In this respect, she categorically opposed the use of the death penalty and voiced concern over the restriction of the right to freedom of expression.
The representative of Ecuador welcomed the positive outcome of the provincial elections, noting that, for the first time in 10 years, authorities were elected in 15 federal provinces, spotlighting that 75 of 285 seats were taken up by women. He hoped this trend will increase in the future, as the Iraqi Government implements its second national action plan on women, peace and security. He voiced concern over the presence of terrorist groups and armed non-State actors, as well as the creeping hostilities due to regional instability. On that, he echoed the Secretary-General’s call for a reduction in escalation and called for a definitive ceasefire. Ecuador deplores the deaths and maiming of civilians, including children, in crossfire and through detonating explosive remnants of war. He also voiced concern over restrictions on freedom of expression and the institutionalization of the death penalty. He called for a lasting solution to be reached on the humanitarian situation faced by internally displaced persons and refugees.
The representative of the Russian Federation welcomed the Government’s efforts to improve the country under difficult circumstances, calling on all internal actors to resolve their differences solely through dialogue for the benefit of all ethno-religious communities and social groups. Only through inclusive dialogue will it be possible to conduct parliamentary elections in the Kurdistan region, he added, stressing that any external attempts to benefit from internecine fighting are “unacceptable”. He went on to say that, despite the Government’s security successes, the situation on the ground remains tenuous as a result of the United States’ attempts to transform Iraq into a stage for geopolitical score-settling and to advance its “parochial internal agendas” against the backdrop of its failed policy for Middle East settlement. “For Washington, international law simply does not exist,” he said, condemning that country’s acts of aggression against sovereign States that continue to “fan the flames of instability in an already volatile region”.
The representative of Slovenia welcomed Iraq’s commitment to reforms that include protecting human rights, providing basic social services, fighting corruption and building accountable institutions and economy. Regional and transboundary cooperation on climate and water security — in particular on desertification and droughts — is crucial for stability and resilience. The recent regional elections, conducted in an orderly and peaceful manner, mark another important milestone in Iraq’s progress. On relations between Baghdad and Erbil, he encouraged the federal and regional authorities to engage in a constructive dialogue on the sharing of oil revenues and security issues. Regrettably, the security situation in Iraq remains volatile, he cautioned, noting: “Da’esh has been contained; but not eliminated.” The increased attacks by militias against the Coalition presence in Iraq represent “an alarming trend”, he said, underlining the need to respect the country’s sovereignty and territorial integrity.
The representative of the Republic of Korea cited the holding of the first provincial election in Iraq in 10 years as “a major step forward” to achieve stable democracy. He also welcomed Baghdad’s measures to empower women in both political and social arenas. In this context, he noted the importance of accelerating the implementation of the 2021 Yazidi Survivors Law, ensuring accountability for atrocities committed by Da’esh, including sexual and gender-based violence, and upholding survivor’s rights to reparation. He further voiced concern over climate-related displacement of more than 130,000 people across the country since 2016, welcoming Baghdad’s efforts to combat the adverse impacts of climate change and water scarcity. “Iraq’s security and stability are all the more important as a result of growing apprehension regarding spillover of the Gaza crisis in the region,” he observed, emphasizing that “any attempts to exploit the fluctuating regional situation at the cost of regional stability are unacceptable”. In this connection, he commended Baghdad’s continuing dialogue with neighbouring countries to address the transborder security situation.
The representative of the United States welcomed progress in Iraq, reaffirming his country’s commitment to a secure, stable and sovereign country. Unfortunately, Iran-aligned militia groups threaten to undermine hard-won gains since the defeat of Da’esh/ISIL seven years ago. Since October 2023, those groups have attacked United States and Coalition forces in Iraq, Syria and Jordan over 165 times, with three United States soldiers killed and dozens injured on 28 January in an attack by those forces. “This is unacceptable, and attacks like it cannot continue,” he stressed. Armed groups operating outside State control represent a significant challenge to the Iraqi Government’s authority, threatening to upend the stability that Iraqis have fought hard to achieve.
He looked forward to recommendations from the independent strategic review on how UNAMI can help further Iraq’s plans to build a sustainable future for its citizens and adapt to its political transition and ever-changing security risks. Voicing strong support for the Mission’s mandate, he recalled that it has already provided assistance in elections, human rights, climate change and government reform. Further, elections on 18 December were generally orderly and peaceful thanks to UNAMI’s trained election staff and equipment. Welcoming the Mission’s continued support to the Government of Iraq in protecting human rights and combating impunity for violations, he encouraged the Government to ensure that its Iraqi High Commission for Human Rights is appropriately empowered. As penholder for the upcoming UNAMI mandate renewal, he looked forward to inclusive discussions on what that mandate might look like after the independent strategic review.
The representative of Iraq outlined his country’s regional and international diplomatic efforts, as well as its domestic efforts to raise living standards and security, by combating poverty, unemployment and corruption. Provincial council elections delayed since 2013 were held on 18 December 2023, he said, spotlighting the accomplishment of holding them in Kirkuk, which was “a mini-Iraq, with diverse components”. Turning to relations between the Governments of Baghdad and Erbil, he touched on discussions between relevant officials on important issues, including salaries of employees, the federal budget law and oil production. Both parties are working to reactivate the Iraq-Turkish oil pipeline, which has not been operational for a year. Stressing the need for countries to not export their internal problems abroad, he stated that, on the Palestinian question, his country called for an end to the war on Gaza, for humanitarian aid to enter, and to halt the expanding radius of the conflict.
On the future of the presence of United States and other Coalition forces in Iraq, a first round of talks was held, he said, adding that his country continues to cooperate on tracking down sources funding terrorist networks. However, he condemned the United States’, Turkish and Iranian violations of his country’s sovereignty and security under the pretext of “weak excuses”, leading to the martyrdom of civilians and damages to property. Iraq is working towards achieving the Sustainable Development Goals by 2030, including through a focus on infrastructure and clean energy, he said, pointing to the Development Fund for Iraq. He also outlined plans to make Iraq a hub of international trade, including through a railroad link with Iran. On cooperation between Iraq and Kuwait on outstanding issues pertaining to the missing Kuwaiti and third-party nationals files, he noted ongoing work between the International Committee of the Red Cross (ICRC) and Ministry of Defence, using satellite imagery and aerial footage provided by the United States to help collect information on possible internment sites.
The representative of Kuwait, pointing out that today is the first time his country participates in a Council meeting on UNAMI, said that this indicates his country’s belief that this file is humanitarian in nature, rather than political. The reason for such participation is to convey concerns regarding the issue of Kuwaiti prisoners and missing Kuwaiti and third-State persons, as well as the return of Kuwaiti property — including the national archives. On that, he noted the Council’s adoption of various resolutions concerning this file, urging Iraq to continue and accelerate cooperation in this context. “As long as this file remains outstanding, the wounds of the Kuwaiti people — the wounds of us all — will not be healed, particularly the wounds of the families of the prisoners and the missing people,” he underscored. Stressing the importance of this file — as well as the need to continue submitting periodic reports to the Council thereon — he added: “Halting any of these mechanisms that have proven to be successful and effective could undermine the extensive efforts that have been made since 1991.”
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