UN backs Iraq resolution

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The UN Security Council has voted unanimously in favour of a revised US text setting out Iraq's political future.

The resolution preserves the dominant role for the US-led administration, but calls upon it to transfer sovereignty and government back to the Iraqi people "as soon as practicable".


The US-led coalition will now be able to get on with Iraq's reconstruction

The outcome of the vote, after weeks of wrangling, will be hailed by some as a victory for American diplomacy, says the BBC's Greg Barrow at the UN.

An announcement shortly before the vote confirmed France, Germany and Russia - leading critics of the US-led war on Iraq - would back the amended text, ending speculation they might abstain altogether.

But continuing concerns about the text mean they will not contribute troops or funds to the reconstruction effort.

"Our common objective is to restore peace and stability to a sovereign, democratic and independent Iraq as quickly as possible" UN Secretary General Kofi Annan.

The resolution was also backed by Syria, representing the Arab world on the Security Council.

UN Secretary General Kofi Annan welcomed the vote, saying the Security Council's common objective was to restore sovereignty to Iraq as quickly as possible.

US Secretary of State Colin Powell said the mutual goal was to help the Iraqi people.

He said he hoped the new resolution would lead to more foreign troops and money being offered to assist in the rebuilding of Iraq, although he indicated he did not expect any major financial contribution from France, Germany and Russia.

The resolution is a compromise but "there are more pluses than minuses", Russia's UN ambassador, Sergei Lavrov, told the Security Council after the vote.

France's UN Ambassador Jean-Marc de La Sabliere said France wanted to make unity in the council "a priority".

Doubters

The shift began on Wednesday and was confirmed after the leaders of France, Germany and Russia discussed the US text and agreed that it went just far enough to win their votes.

The three dissenters had been pushing Washington for concessions on the text which is aimed at winning broad international backing for the reconstruction of Iraq.

The vote was delayed from Wednesday after Russia insisted on the last-minute discussions with its allies.

China - another veto-wielding member of the council - had also been unenthusiastic about the US resolution, which was proposed with the support of the UK, Spain and Cameroon.

But Foreign Minister Li Zhaoxing said on Thursday that the amendments made the text more acceptable.

No big changes

The broad shape of the resolution that was put to the vote has not changed dramatically.

"We would have preferred in particular that this text set more binding and shorter deadlines" French Foreign Minister Dominique de Villepin.


The resolution confirms that for the time being the Coalition Provisional Authority will remain the over-arching power in Iraq, although it stresses that the transfer of sovereignty and government back to the Iraqi people will happen as soon as practicable.

The United Nations is promised a strengthened vital role in the political and economic reconstruction process, but only as circumstances, particularly security, permit.

Still missing is a clear timetable, with dates, for a transfer of power and anything like the more dominant role that the UN had sought, our correspondent says.

But the resolution asks Iraqi leaders to draw up a plan for a new constitution and elections by 15 December.

The three dissenting countries had raised concerns about the role the United Nations would play in the political settlement in Iraq, as well as about the mandate of a future international peacekeeping force.

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Here is the full text of the resolution on the political and economic reconstruction of Iraq put forward by the United States and adopted by members of the United Nations Security Council on Thursday. It is co-sponsored by Britain, Cameroon and Spain. (Sources: Reuters, AFP)
THE SECURITY COUNCIL, REAFFIRMING its previous resolutions on Iraq, including resolution 1483 (2003) of 22 May 2003 and 1500 (2003) of 14 August 2003, and on threats to peace and security caused by terrorist acts, including resolution 1373 (200 1) of 28 September 2001, and other relevant resolutions,

UNDERSCORING that the sovereignty of Iraq resides in the State of Iraq, reaffirming the right of the Iraqi people freely to determine their own political future and control their own natural resources,

REITERATING its resolve that the day when Iraqis govern themselves must come quickly, and RECOGNISING the importance of international support, particularly that of countries in the region, Iraq's neighbours, and regional organisations, in taking forward this process expeditiously,

RECOGNISING that international support for restoration of conditions of stability and security is essential to the well-being of the people of Iraq as well as to the ability of all concerned to carry out their work on behalf of the people of Iraq, and welcoming Member State contributions in this regard under resolution 1483 (2003 ),

WELCOMING the decision of the Governing Council of Iraq to form a preparatory constitutional committee to prepare for a constitutional conference that will draft a constitution to embody the aspirations of the Iraqi people, and URGING it to complete this process quickly,

AFFIRMING that the terrorist bombings of the Embassy of Jordan on 7 August 2003, of the United Nations headquarters in Baghdad on 19 August 2003, and of the Imam Ali Mosque in Najaf on 29 August 2003, are attacks on the people of Iraq, the United Nations, and the international community, and DEPLORING the assassination of Dr Aqila al-Hashimi, who died on 25 September 2003, as an attack directed against the future of Iraq,

In that context, recalling and REAFFIRMING the statement of its President of 20 August 2003 (S/PRST /2003/13) and resolution 1502 (2003) of 26 August 2003,

DETERMINING that the situation in Iraq, although improved, continues to constitute a threat to international peace and security,

ACTING UNDER CHAPTER VII OF THE CHARTER OF THE UNITED NATIONS,

1. REAFFIRMS the sovereignty and territorial integrity of Iraq, and UNDERSCORES, in that context, the temporary nature of the exercise by the Coalition Provisional Authority (Authority) of the specific responsibilities, authorities, and obligations under applicable international law recognised and set forth in resolution 1483 (2003 ), which will cease when an internationally recognised, representative government established by the people of Iraq is sworn in and assumes the responsibilities of the Authority, inter alia through steps envisaged in paragraphs four through seven and 10 below;

2. WELCOMES the positive response of the international community, in for as such as the Arab League, the Organisation of the Islamic Conference, the United Nations General Assembly, and the United Nations Educational, Scientific and Cultural Organization, to the establishment of the broadly representative Governing Council as an important step towards an internationally recognised, representative government;

3. SUPPORTS the Governing Council's efforts to mobilise the people of Iraq, including by the appointment of a cabinet of ministers and a preparatory constitutional committee to lead a process in which the Iraqi people will progressively take control of their own affairs;

4. DETERMINES that the Governing Council and its ministers are the principal bodies of the Iraqi interim administration, which, without prejudice to its further evolution, embodies the sovereignty of the State of Iraq during the transitional period until an internationally recognised, representative government is established and assumes the responsibilities of the Authority;

5. AFFIRMS that the administration of Iraq will be progressively undertaken by the evolving structures of the Iraqi interim administration;

6. CALLS UPON the Authority, in this context, to return governing responsibilities and authorities to the people of Iraq as soon as practicable and requests the Authority, in co-operation as appropriate with the Governing Council and the secretary general, to report to the Council on the progress being made;

7. INVITES the Governing Council to provide to the Security Council, for its review, no later than 15 December 2003, in co-operation with the Authority and, as circumstances permit, the Special Representative of the Secretary-General, a timetable and a programme for the drafting of a new constitution for Iraq and for the holding of democratic elections under that constitution;

8. RESOLVES that the United Nations, acting through the Secretary-General, his Special Representative and the United Nations Assistance Mission in Iraq, should strengthen its vital role in Iraq, including by providing humanitarian relief, promoting the economic reconstruction of and conditions for sustainable development in Iraq, and advancing efforts to restore and establish national and local institutions for representative government;

9. REQUESTS that, as circumstances permit, the Secretary-General pursue the course of action outlined in paragraphs 98 and 99 of the report of the Secretary-General of 17 July 2003 (S/2003/715);

10. TAKES NOTE of the intention of the Governing Council to hold a constitutional conference and, recognising that the convening of the conference will be a milestone in the movement to the full exercise of sovereignty, calls for its preparation through national dialogue and consensus-building as soon as practicable and requests the Special Representative of the Secretary-General, at the time of the convening of the conference, and as circumstances permit, to lend the unique expertise of the United Nations to the Iraqi people in this process of political transition, including the establishment of electoral processes;


11. REQUESTS the Secretary-General to ensure that the resources of the United Nations and associated organisations are available, if requested by the Iraqi Governing Council and, as circumstances permit, to assist in furtherance of the programme provided by the Governing Council in paragraph 7 above. and encourages other organisations with expertise in this area to support the Iraqi Governing Council, if requested;

12. REQUESTS the Secretary-General to report to the Security Council on his responsibilities under this resolution and the development and implementation of a timetable and programme under paragraph 7 above;

13. DETERMINES that the provision of security and stability is essential to the successful completion of the political process as outlined in paragraph 7 above and to the ability of the United Nations to contribute effectively to that process and the implementation of resolution 1483 (2003 ), and AUTHORISES a multinational force under unified command to take all necessary measures to contribute to the maintenance of security and stability in Iraq, including for the purpose of ensuring necessary conditions for the implementation of the timetable and programme as well as to contribute to the security of the United Nations Assistance Mission for Iraq, the Governing Council of Iraq and other institutions of the Iraqi interim administration, and key humanitarian and economic infrastructure;

14, URGES Member States to contribute assistance under this United Nations mandate, including military forces, to the multinational force referred to in paragraph 13 above;

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15. DECIDES that the Council shall review the requirements and mission of the multinational force referred to in paragraph 13 above not later than one year from the date of this resolution, and that in any case the mandate of the force shall expire upon the completion of the political process as described in paragraphs 4 through 7 and 10 above, and expresses readiness to consider on that occasion any future need for the continuation of the multinational force, taking into account the views of an internationally recognised, representative government of Iraq;

16, EMPHASISES the importance of establishing effective Iraqi police and security forces in maintaining law, order, and security and combating terrorism consistent with paragraph 4 of resolution 1483 (2003), and calls upon Member States and international and regional organisations to contribute to the training and equipping of Iraqi police and security forces;

17. EXPRESSES deep sympathy and condolences for the personal losses suffered by the Iraqi people and by the United Nations and the families of those United Nations personnel and other innocent victims who were killed or injured in these tragic attacks;

18. UNEQUIVOCALLY CONDEMNS the terrorist bombings of the Embassy of Jordan on 7 August 2003, of the United Nations headquarters in Baghdad on 19 August 2003, and of the Imam Ali Mosque in Najaf on 29 August 2003, and of the embassy of Turkey on 14 October 2003, the murder of a Spanish diplomat on 9 October 2003, and the assassination of Dr Aqila al-Hashimi, who died on 25 September 2003, and EMPHASISES that those responsible must be brought to justice;

19. CALLS UPON Member States to prevent the transit of terrorists to Iraq, arms for terrorists, and financing that would support terrorists, and emphasises the importance of strengthening the co-operation of the countries of the region, particularly neighbours of Iraq, in this regard;

20. APPEALS to Member States and the international financial institutions to strengthen their efforts to assist the people of Iraq in the reconstruction and development of their economy, and urges those institutions to take immediate steps to provide their full range of loans and other financial assistance to Iraq, working with the Governing Council and appropriate Iraqi ministries;

21. URGES Member States and international and regional organisations to support the Iraq reconstruction effort initiated at the 24 June 2003 United Nations Technical Consultations, including through substantial pledges at the 23-24 October 2003 International Donors Conference in Madrid;

22. CALLS UPON Member States and concerned organisations to help meet the needs of the Iraqi people by providing resources necessary for the rehabilitation and reconstruction of Iraq's economic infrastructure;

23. EMPHASISES that the International Advisory and Monitoring Board (IAMB) referred to in paragraph 12 of resolution 1483 (2003) should be established as a priority, and reiterates that the Development Fund for Iraq shall be used in a transparent manner as set out in paragraph 14 of resolution 1483 (2003);

24. REMINDS all Member States of their obligations under paragraphs 19 and 23 of resolution 1483 (2003) in particular the obligation to immediately cause the transfer of funds, other financial assets and economic resources to the Development Fund for Iraq for the benefit of the Iraqi people;

25. REQUESTS that the United States, on behalf of the multinational force as outlined in paragraph 13 above, report to the Security Council on the efforts and progress of this force as appropriate and not less than every six months;

26. DECIDES to remain seized of the matter.

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The United Nations rose from the ashes of World War II as an organisation of "peace-loving" states.


UN Secretary-General Kofi Annan

One of its key aims was to spare succeeding generations from the scourge of armed conflict, and its Security Council - which met for the first time in 1946 - was specifically tasked with ensuring global peace and security.

Once widely criticised as a talking-shop, the council has had a more active role on the world stage in recent years, introducing sanctions regimes and authorising the use of force in conflicts.

Members

Five nations are permanently represented on the Security Council. They reflect the post-war power structure that held sway when the council was formed.

PERMANENT MEMBERS
China
France
Russia
United Kingdom
United States

Members of this privileged group work alongside 10 non-permanent member countries. Each member - permanent or otherwise - holds the presidency of the council for a one-month period, on a rotating basis.


The non-permanent members are elected for two-year terms by members of the UN General Assembly, the body which represents all UN members.

CURRENT ELECTED MEMBERS
Angola - until December 2004
Bulgaria - until end of 2003
Cameroon - until end of 2003
Chile - until end of 2004
Germany - until end of 2004
Guinea - until end of 2003
Mexico - until end of 2003
Pakistan - until end of 2004
Syria - until end of 2003
Spain - until end of 2004

The aim is to achieve a regional balance, with five Asian or African members, two Latin American members, one east European, and two members from western Europe or other regions making up the mix of non-permanent members.

Nations compete keenly for council membership, maybe because of the prestige attached, or the chance to advocate an issue that is in the national interest. Some countries announce their candidacy many years in advance and actively canvass votes.

Decision-making

Draft resolutions are drawn up by one or more members of the council and circulated privately to the others.

The drafts can be negotiated or changed in a process called "consultations". If agreed to by all members, the resolution is formally proposed to the council.

Each member has one vote. Decisions on what the council calls "substantive" issues need a majority of nine votes before they can be passed, including either votes or abstentions from all five permanent members.

Not surprisingly, the question of whether an issue is substantive or not is itself the subject of lively debate.

Right of veto

Thus, each of the permanent members has the right of veto; if one of them votes against a resolution it cannot be passed. But a resolution can be passed if a permanent member abstains from the vote.

A general decline in the use of the veto, which followed the end of the Cold War, helped the council to become a more-effective decision-maker.

The Security Council attaches great importance to preventing armed conflict in the first place, but once a dispute has flared its first aim is to seek a diplomatic solution.

If a conflict persists, the Security Council may work towards a ceasefire and deploy peacekeepers. It can order UN nations to impose sanctions and, as a last resort, it may authorise military action against an aggressor.

UN SECURITY COUNCIL KEY EVENTS
1946 - First meeting of Security Council held in London
1950 - Member nations urged to help South Korea repel invasion from north
1963 - Council votes for voluntary arms embargo against South Africa
1964 - Sends peacekeepers to Cyprus
1977 - Adopts mandatory arms embargo against South Africa
1990 - Authorises military force to end Iraqi occupation of Kuwait
1992 - Imposes sanctions on Libya after Lockerbie bombing
1993 - Establishes war crimes tribunal in The Hague to deal with Balkan war crimes
1999 - Authorises East Timor peacekeeping force
1999 - Kosovo crisis: US-led alliance launches bombing campaign against Yugoslavia without Security Council approval
2001 - Adopts resolution 1373 on anti-terror strategies, in wake of September 11 attacks on US
2002 - Adopts resolution 1441, an enhanced mandate to verify Iraq's compliance with its obligations regarding weapons of mass destruction
2003 - Adopts resolution giving backing to US-led administration in Iraq, lifting economic sanctions


Expansion

The status quo of the permanent members has not changed since the council's first meeting in 1946, and the make-up of the Security Council has become a pressing issue for the UN.

Germany, India, Japan, Italy and Brazil are among those who have lobbied for coveted permanent-member status.

A working group on reform set up under the UN General Assembly in 1993 has made little progress on the matter, with a lack of concensus over potential candidates.

Secretary-General Kofi Annan has warned that the lack of reform could weaken the council's standing in the world.

Arab criticism and Iraq

The council has faced strong criticism from many Arab countries, who accuse it of permitting Israeli violations of council resolutions while pursuing an unduly hard line against Iraq. The US has most frequently used its power of veto to take into account what it regards as Israel's security concerns.

The Security Council came under strong pressure from US President George W Bush in the run-up to the 2003 US-led Iraq campaign. Mr Bush cited Baghdad's "decade of defiance" of Security Council resolutions. "Will the UN serve the purpose of its founding... or will it be irrelevant," he asked in a speech to the General Assembly in September 2002.

The Iraqi crisis tested the Security Council's credibility and authority to the limit. Resolution 1441, passed by the council, demanded that Iraq disarm and cooperate with weapons inspectors. But some permanent members, including France and Russia, disagreed with the US-UK assertion that 1441 allowed for military action.

With France proposing to veto a second resolution authorising action, the decision to go to war was made without Security Council approval. The failure of diplomacy was seen as a bad portent for the Security Council's future prospects.

Opening the General Assembly debate in September 2003, Mr Annan urged member states against the unilateral and lawless use of force. This was an apparent reference to the United States' decision to go to war with Iraq without the go-ahead from the UN Security Council.

More generally, the Security Council has been criticised for not taking forceful action until a catastrophe or conflict unfolds, even when this might have been predicted, as in the Rwandan genocide of 1994.

Mindful of this, and the bombing campaign against Yugoslavia in 1999 which was undertaken without council approval, leaders of all 15 member states met in 2000 to adopt measures which would give the organisation more teeth, including a review of peacekeeping operations.