REQUEST FOR DEMARCH ON UNAMI DRAWDOWN

C O N F I D E N T I A L SECTION 01 OF 02 BAGHDAD 004593

SIPDIS

SIPDIS

E.O. 12958: DECL: 12/16/2016
TAGS: PREL KDEM PHUM IO IZ
SUBJECT: REQUEST FOR DEMARCH ON UNAMI DRAWDOWN

REF: A. BAGHDAD 4422


B. BAGHDAD 4581

Classified By: Ambassador Zalmay Khalilzad for reasons 1.4 (b) and (d).


1. (C) This is an Action Request for the Department. See
paras 7 and 8.


2. (C) SUMMARY: UN Special Representative to the Secretary
General (SRSG) Ashraf Qazi sent a cable on November 27 to HQ
UN which recommended a major reduction of staff in Iraq.
Under this recommendation, which was quickly approved based
on security concerns, the United Nations Assistance Mission
Iraq (UNAMI) has already begun a staff transfer to Amman,
Jordan, and Kuwait City, Kuwait. Our understanding is that
this draw down will reduce their overall manning in Iraq by
approximately 40 percent. U.S. Embassy Baghdad believes this
reduction sends the wrong message to the Iraqi people, the
Iraqi government, the NGO community and our coalition
partners in Iraqi. We also believe this draw down will
significantly impact UNAMI's ability to remain effectively
engaged in Iraq at a critical time. Embassy requests the
Department -- through a proposed demarche to be delivered by
USUN -- express its strongest concerns to HQ UN over this
staff reduction and urge the UN to revise or reverse this
decision. END SUMMARY.

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THE DRAW DOWN AS WE UNDERSTAND IT
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3. (C) SRSG Qazi sent a cable to Headquarters UN on November
27 recommending that UNAMI staffing in Iraq be reduced from
95 to 55 positions as soon as possible. We have been told
that under this recommendation, which was quickly approved,
these 40 positions and their incumbents would be moved to
Amman, Jordan, and Kuwait City, Kuwait, where they could
continue to support UNAMI's efforts remotely. This
realignment has already begun and is expected to be complete
in coming weeks. UNAMI currently has 91 staff members in
country, of which about 36 will depart. This represents a
40% reduction of in-country staff.


4. (C) We have been told the recommendation for the staff
realignment was based on security concerns, specifically, the
lack of hard cover protection from indirect fire over UNAMI's
housing compound. Deputy SRSG Michael von der Schulenburg
stated to US Embassy officials on December 12 that it would
cost an estimated 33 million USD to construct overhead
protection for the housing trailers occupied by UNAMI staff,
and this was a major factor in their decision to draw down.
Schulenburg characterized the draw down as temporary, saying
it would last until the security situation stabilizes or the
housing protection issue is resolved. He hinted that there
was some flexibility in the manning and that it would be
re-evaluated in approximately four months.

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THE DRAWDOWN'S IMPACT IN IRAQ
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5. (SBU) The UN decision to draw down in Baghdad jeopardizes
the UN's ability to carry out needed projects in Iraq and has
already begun to have an impact. For example, the reduction
in UNAMI's constitutional review team -- which has gone from
three Baghdad-based staff members to one -- has negatively
and visibly led to diminished UN engagement in advising the
Iraqi Council of Representatives on Constitutional review.
We are also concerned about planned cuts in personnel working
on the political team, which is going from nine to three
Baghdad-based personnel. This team has been a consistent
advocate for national dialogue and legislative engagement.
The human rights team has similarly been reduced, from three
to two Baghdad-based staff members, and we understand there
are planned reductions in many other key offices.


6. (SBU) Even prior to these cuts, the UN was operating in
Baghdad at a level much lower than circumstances require --
for instance, there has been no UNHCR international
representative in a country with one of the highest number of
Internally Displace Persons in the world. UN staff working
in Amman cannot engage Iraqi government officials, members of
parliament, or key nongovernmental players in Iraq in a
sufficiently sustained manner to influence events in this
rapidly changing political environment.

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Action Request
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BAGHDAD 00004593 002 OF 002




7. (SBU) Taking into consideration these concerns with regard
to the UNAMI drawdown, post requests the Department instruct
USUN to demarche the UNSYG or other appropriate high level UN
official, taking into consideration the following points:

-- We are strongly concerned about the UN decision to draw
down UNAMI staff posted in Baghdad by approximately 40
percent;

-- The decision, which was taken without external
consultation, took the U.S. and others in the international
community by surprise. It comes at an important juncture in
international efforts to help Iraqis reduce violence and
undertake National Reconciliation;

-- Without a robust presence in Baghdad, we are concerned
that the UN will not be able to respond dynamically to
rapidly changing circumstances in Iraq or engage in a
sustained manner with key Iraqi decision-makers;

-- 2007 will be a critical year in the development of Iraqi
Democracy, with key decisions to be made on the final status
of Kirkuk, the review of the constitution, and the role of
provincial governments. There is also a strong possibility
of referenda on Kirkuk and constitutional review, as well as
a new round of elections for provincial councils. The
decision to reduce UN staff will impede the international
community's ability to assist Iraq in meeting these
challenges;

-- In a broader sense, the decision to draw down UNAMI in
Baghdad could also be interpreted as a significant lessoning
of the UN's commitment to the Iraqi government and citizens
who are struggling in Iraq for freedom from oppression and to
establish security. It sends a signal to the rest of the
international community that the UN sees efforts in Iraq as
too tough or difficult to resolve;

-- We understand the fundamental importance of security for
international personnel working in Iraq. We, ourselves, take
numerous measures to lessen the risk presented to staff
serving in Iraq. However, as we all take steps to improve
security, we cannot in the interim lessen our commitment to
the Iraqi government or people;

-- We strongly urge the UN to reverse the decision to draw
down the staff of UNAMI in Baghdad, and to take every step to
ensure full staffing as you make those security upgrades you
deem feasible. Resuming fully UNAMI operations in Iraq's
capital would indicate to Iraqis and the world the commitment
of the UN to Iraq's democracy;

-- We would hope the UN would further consider taking steps
to actually increase its presence in Baghdad, perhaps through
the positioning of permanent international staff from UNHCR
or other key agencies under represented or not represented at
all in Iraq.


8. (C) Post requests the Department consider seeking support
from other Coalition governments, including through
requesting they also demarche the UN at a high level on this
issue.
KHALILZAD