SURVEY OF MONGOLIA'S IRAQ DEPLOYMENT REQUIREMENTS

C O N F I D E N T I A L SECTION 01 OF 02 ULAANBAATAR 000681

SIPDIS

SIPDIS

STATE FOR EAP/CM, NEA/I-PM AND INR/EAP

E.O. 12958: DECL: 12/07/2017
TAGS: MARR MOPS PREL PGOV IR MG
SUBJECT: SURVEY OF MONGOLIA'S IRAQ DEPLOYMENT REQUIREMENTS

REF: SECSTATE 150164

ULAANBAATA 00000681 001.2 OF 002


Classified By: Ambassador Mark C. Minton for Reason 1.4(d).


1. (C) SUMMARY: Per reftel, Post has assessed requirements
that the Mongolian Government (GOM) would have to meet in
order to deploy troops to Iraq, in various scenarios.
Mongolia could not legally participate in Operation Iraqi
Freedom (OIF) under any of the four scenarios set forth in
reftel. As we understand it, it is illegal for Mongolia to
deploy troops beyond its borders without an approved UN
mandate. Furthermore, Mongolian law does not allow Mongolian
troops to participate in active combat missions beyond those
required for national defense or border protection.
Participation in OIF or Operation Enduring Freedom (OEF) is
formally referred to as participation in a "reconstruction
and stabilization operation in support of Iraq." Normally,
the Mongolian Armed Forces process a deployment request
through the General Staff to the Defense Ministry, for
consideration by the National Security Council (composed of
the President, Prime Minister and Speaker). The NSC then
debates the deployment privately and makes a recommendation
to the Cabinet, which approves or disapproves, though it
rarely if ever disapproves a decision by the nation's three
most powerful leaders. So far, military deployments have
escaped Parliamentary debate and have not required
Parliamentary voting for approval. END SUMMARY.


2. (C) Per reftel, Post has carried out an internal
assessment into requirements that the Mongolian Government
(GOM) would have to meet in order to deploy troops to Iraq,
in various scenarios. To recap, these scenarios include:


A. The U.S. concludes an agreement with Iraq that
troop-contributing countries could join as parties (either
after the fact, or as a full participant in negotiations).


B. The U.S. concludes a bilateral agreement with Iraq that
allows troop-contributing countries to sign up for
"third-party" rights and obligations without joining as
parties.


C. Q7#Qg
through an international mechanism or through provisions in
the U.S.-Iraq bilateral agreement that would apply to all
forces under U.S. command.

DECISIONS ON MILITARY DEPLOYMENTS
--------------


3. (C) Normally, the Mongolian Armed Forces initiates a
deployment request through the General Staff to the Defense
Ministry, for consideration by the National Security Council.
The NSC then debates the deployment privately and makes a
recommendation to the Cabinet, which approves or disapproves,
although it rarely if ever disapproves a decision made by the
country's three most powerful leaders. (For the 8th
rotation, COS Togoo was called in to answer questions before
the Cabinet gave its approval.) The President is Commander
in Chief. So far, military deployments have escaped
Parliamentary debate and have not required Parliamentary
voting for approval.

NO LEGAL GROUNDS FOR PARTICIPATION
--------------


4. (C) Simply put, Mongolia could not legally participate in
Operation Iraqi Freedom (OIF) under any of the four scenarios
outlined above. As we understand it, it is illegal for
Mongolia to deploy troops beyond its borders without an

ULAANBAATA 00000681 002.2 OF 002


approved UN mandate. Furthermore, Mongolian law does not
allow Mongolian troops to participate in active combat
missions beyond those required for national defense or border
protection. Participation in OIF or Operation Enduring
Freedom (OEF) is formally referred to as participation in a
"reconstruction and stabilization operation in support of
Iraq."

EXECUTIVE DECISION INSUFFICIENT
-------------- EVRO8e time frame for a decision
on these matters would be months, not weeks, and could
stretch out more than one year.


6. (C) We believe that if OIF loses its UN mandate, it will
be very difficult -- but not impossible -- for supportive
Mongolian politicians to bring about a rapid change in the
law to continue participating. (Comment: We feel it would be
best to engage Foreign Ministry lawyers to develop a more
comprehensive response/understanding. End Comment.)

UNSC RESOLUTION VITAL
--------------


7. (C) A UN Security Council resolution would be necessary,
or at least very beneficial, for Mongolia to continue its
participation in Iraq. It is unclear whether a Chapter VII
authorization for military action would help or hinder the
GOM make a political decision to continue support; military
action is expressly forbidden, but the Mongolian Armed Forces
could participate in stabilization or reconstruction efforts.

RESOURCE LIMITATIONS
--------------


8. (U) Mongolia faces significant limitations on both
financial and military resources. In additional, Mongolia
suffers from chronic poverty, weak infrastructure, health
care challenges and an inadequate welfare system.

UNTESTED BY CASUALTIES OR COMBAT LOSSES
--------------


9. (C) To date, Mongolian forces have not suffered combat
deaths, though they registered one death last month in Sierra
Leone due to illness. They have sustained minor scratches
and bumps while under fire in Iraq. Otherwise, Mongolian
popular and political resolve is untested.

BOOST FROM MCC COMPACT
--------------


10. (C) Members of the public, and some in Parliament, have
begun to ask whether the benefits of participation in Iraq
are worth the financial expenditure and potential combat
casualty when there is so much social and economic need at
home. However, the successful signing of the $285 million
Millennium Challenge Corporation Compact for Mongolia has
mitigated some of the bad feelings toward international
military deployments. We believe that most Mongolians feel
there is now something to show for their continued
participation, and are less negative about a continued
presence in Iraq.


11. (SBU) Post will report promptly any change in Mongolian
law or policy with regard to overseas deployments.
MINTON