Page:The Report of the Iraq Inquiry - Executive Summary.pdf/94

The Report of the Iraq Inquiry UK INFLUENCE ON THE COALITION PROVISIONAL AUTHORITY

662.  By the time resolution 1483 was adopted, the CPA was already operating in Iraq under the leadership of Ambassador L Paul Bremer, reporting to Mr Donald Rumsfeld, the US Defense Secretary. There was no reporting line from the CPA to the UK.

663.  The resolution’s designation of the US and UK as joint Occupying Powers did not reflect the reality of the Occupation. The UK contribution to the CPA’s effort was much smaller than that of the US and was particularly concerned with Basra.

664.  The UK took an early decision to concentrate its effort in one geographical area rather than accept a national lead for a particular element of the Coalition effort (such as police reform). However, it was inevitable that Iraq’s future would be determined in Baghdad, as both the administrative centre and the place where the power shift from minority Sunni rule to majority Shia rule was going to be most keenly felt. Having decided to concentrate its effort on an area some distance removed from the capital, the UK’s ability to influence policy under debate in Baghdad was curtailed.

665.  In Baghdad itself, the UK provided only a small proportion of the staff for the military and civilian headquarters. The low numbers were influenced in part by reasonable concerns about the personal legal liabilities of UK staff working initially in ORHA and then in the CPA, and what their deployment might imply about the UK’s responsibility for decisions made by those organisations, in the absence of formal consultation or the right of veto.

666.  The pre‑invasion focus on a leading UN role in Iraq meant that little thought had been given to the status of UK personnel during an occupation which followed an invasion without Security Council authorisation. Better planning, including proper assessment of a variety of different possible scenarios, would have allowed such issues to be worked through at a much earlier stage.

667.  There was an urgent need for suitably experienced UK officials ready to deploy to Baghdad, but they had not been identified (see Section 15).

668.  No governance arrangements were designed before the invasion which might have enabled officials and Ministers based in London and Washington to manage the implications of a joint occupation involving separate resources of a very different scale. Such arrangements would have provided a means to identify and resolve different perspectives on policy, and to facilitate joint decisions.

669.  Once the CPA had been established, policy decisions were made largely in Baghdad, where there was also no formal US/UK governance structure. This created a risk described to the Inquiry by Sir Michael Wood, FCO Legal Adviser from 2001 to 2006, as “the UK being held jointly responsible for acts or omissions of the CPA, without a right to consult and a right of joint decision”. Rh