AS
DELIVERED
THE UNMOVIC MISSION
Lecture by Executive Chairman Hans Blix at the
6th Training Course
Vienna, 7 October 2002
This is the sixth basic training
course organized by UNMOVIC for experts who are willing to serve as UN inspectors
in Iraq. While all the five preceding
courses have been held with Iraq saying no to UN inspection, this course is
held after a recent Iraqi yes.
Exactly a week ago here in Vienna, the Director General of the IAEA, Dr.
Mohamed ElBaradei and I discussed with an Iraqi delegation a large number of
practical arrangements about which we need clarity before we send any
inspection staff to Iraq.
It is not that we do not know what
rights and duties we have and what obligations Iraq has accepted, but we know
from years of experience that implementation in the field can be shaky – to put
it mildly – and interpretations can differ.
Hence, we have wanted to ensure that we see eye-to-eye on how we go
about our work. We cannot foresee
everything. The inspectors in the
field, the Chief Inspector of every team, the staff at the Baghdad Ongoing
Monitoring, Verification and Inspection Centre (BOMVIC), will have to
familiarize themselves with the rules, which guide us and they have to exercise
their judgement.
Iraq should have good reason to
cooperate in all respects. It has now a
new chance to give the world confidence that it is ridding itself from weapons
of mass destruction – to the extent this is not already done.
If any of these weapons or other
proscribed equipment or items or programmes or remnants of them still exist,
this is the moment to declare them and destroy or otherwise eradicate them
under UNMOVIC or IAEA supervision. This
is the moment not only to open up all doors and archives, but actively to bring
forward evidence: documents, budgets,
registers, invoices, reports, transportation lists, etc. And for witnesses to give testimony. Iraq is a well-organized country.
Through openness, transparency, Iraq
can convince the inspectors. And, the
inspectors, if they are thorough, effective and professional, can convince the
Security Council and the world.
Inspection is an opportunity – not a penalty!
South Africa tried this route successfully. As the first – but hopefully not the last – State with a nuclear-weapon capacity, it decided to roll back, to do away with its capacity. How could it convince the world that it had done away with all the bombs? All the bomb-grade uranium? All tools? It turned to the IAEA to inspect and verify. And said: here are all the documents we think you need! If you want more just tell us! And here are all the sites we think you should visit. If there are more – military or civilian – just tell us and we shall take you there. After very extensive analysis of documents, and visits to many sites and experiences of the South African transparency and cooperation, the IAEA inspection team said: we saw no signs of any remaining weapons programmes. After this thorough investigation and sincere South African cooperation, the world accepted that the weapons programme was terminated.
Although it had not yet produced any nuclear weapons by 1991, Iraq’s WMD
programme was extensive and it had uses long-range missiles and chemical
weapons. The UNMOVIC and IAEA
inspection, verification programme is, accordingly, very extensive.
Nevertheless, if Iraq were to choose the path that South Africa chose,
if it were to show the active and sincere cooperation and transparency, and a
willingness to roll back, it would have the same chances as South Africa to
gain confidence.
As in the case of South Africa, UNMOVIC and IAEA would never come so far
as to say positively: “There is
absolutely nothing left.” We would say: “We have had extensive, genuine and sincere,
active cooperation in all respects and we see no signs of remaining WMDs.” The cooperation need not be with enthusiasm,
but it must be without reservations.
Nobody loves inspection. What we
expect is that the inspected party feels that effective inspection is in its
interest.
It is not possible to examine every square metre in a big country or every basement or every computer programme, or archive, or every truck on the road. There will always be some residue of uncertainty. Every one of us wants “a clean bill of health”, but in the absolute sense, it is neither attainable in medicine nor in WMD inspections. All that is attainable is a high degree of assurance that there are no malign bugs or bombs hidden anywhere. This is attainable through very thorough professional inspection and cooperation in all respects by the inspected party.
You are all professionals in the fields of biology, chemistry or
missiles. We want to add something
important to your professional equipment:
the background of the inspection work in Iraq; the UN framework, the WMD
programmes, so far as they have been mapped, the techniques of inspection,
knowledge about the history, culture and religion of Iraq.
How
should inspectors conduct themselves?
I have said it many times and I will say it to you: We do not seek to humiliate, harass or
provoke. We want effective,
professional inspection and monitoring and it is for us to determine what is
humiliating, harassing or provoking. If
Iraq felt we exceeded our rights, it can write to the Security Council, which
we serve. They did so in the past. But if they do so again without good reason,
it will be counterproductive.
At our fifth basic training course, in Geneva, earlier this year, I
spoke about how I think inspectors should conduct themselves and I have
understood that my listeners found it clarifying. Others, who will appear before you, have much personal experience
and can thus discuss the issues with more expertise. Let me nevertheless repeat what I said:
First, there are many types of inspections in the world – for customs
control or tax control or traffic control.
They are rarely loved but they had better be respected.
It is important, I think, that inspectors at all times remember what their mission is, and what instructions and rights they have. UNMOVIC inspectors are on duty on behalf of the Security Council, which wants the full mapping of Iraq’s WMD programmes and reassurance that it has been or is being eradicated. Their job may thus be to clarify, verify, check the absence of defined items or the peaceful use of other items, or supervise the destruction of yet other items. You will hear much more about this.
It is important, further, for inspectors, especially chief inspectors,
to explain very clearly to Iraqi counterparts what they want and make sure that
they are clearly understood. In an
environment where hardly anyone communicates in his or her own language, this
is a highly practical matter. There are
enough possible grounds for differences without adding some due to
misunderstandings.
Inspectors must further remember that they are – inspectors. They are not soldiers. They cannot shoot their way in, nor should
they shout. They cannot use force and
they must, at all times, respect instructions regarding safety. If they encounter attempts of denials of
access, obstruction or defiance, they should explain and argue, e.g. that
immediate, unconditional and unrestricted access is of importance for the
credibility of inspections. They can
also protest, videotape for evidence and report. They must exercise their judgement in situations which may be
difficult. If needed, they can also ask
for advice by mobile communications.
If I were to give some adjectives of
what I believe would be desirable conduct, I would say:
Driving and dynamic – but not angry
and aggressive
Firm – but correct
Ingenious – but not deceptive
Somewhat flexible – but not to be
pushed around
Calm – but somewhat impatient
Keeping some distance – but not
arrogant or pompous
Friendly – but not cozy
Show respect for those you deal with
– and demand respect for yourself
A light tone or a joke may sometimes
break a nervous atmosphere in the field.
On this point, I can also simply
repeat what I said in Geneva:
The international inspection
authorities are not designed to be mechanisms for espionage. That term signifies – at any rate comprises
– the collection of information by illegal means. The international inspection authorities, however, are to use the
sources of information and the means of obtaining information, which are
authorized by the mandating organizations.
This means, in the first place, declarations by the inspected countries
and verification of these declarations and the evidence submitted in support of
them, through analysis and on-site inspection.
To be sure, Member States are asked to assist international inspection
authorities in various ways, e.g. by satellite imagery, analysis of samples –
and also by information based on intelligence.
However, under the mandate of resolution 1284 (1999), the assistance is
to be a one-way traffic. The inspection
authority may receive information from anywhere and tell national authorities
what it is interested in, but it is to report to the mandating international
organ [the SC], not to individual Member States that may provide assistance.
UNMOVIC and the IAEA have their mandates from the
Security Council. There have been no
inspections for nearly four years. If
they restart, I am sure the Council will not tolerate any “cat and mouse” game
and it will expect UNMOVIC to report any such play immediately. I hope we shall not need to give such reports.
What I know is that it is for the Council
to consider them and decide upon the consequences. Peace or armed action is not our decision. Ours is a job of professional inspection and
factual reporting.
What are we looking for in Iraq?
The original concept – resolution
687 (1991) – was that Iraq should declare its programmes of WMD, where the
stocks of weapons were, the factories, laboratories, etc. And it was for UNSCOM and the IAEA to verify
and ensure and supervise the destruction, removal or rendering harmless of all
prohibited items.
This phase was expected to be a
relatively short one. After the
eradication process was to come a monitoring process, giving confidence that
nothing prohibited was being built, produced or imported.
The
Iraqi declarations were a disappointment.
Therefore, the inspection and verification phase never finished. Regrettably, it developed into a long
operation that some called hide-and-seek.
It went on year after year and meanwhile the economic sanctions wrecked
havoc on the Iraqi population until the oil-for-food programme of the UN
restored and gradually vastly increased imports.
The concept adopted by the Security
Council in December 1999 in resolution 1284 – one year after inspections ceased
– is one of “reinforced ongoing monitoring and verification”. This combines routine monitoring of many
known sites with the possibility of extensive and thorough inspections, at any
site and surveillance and analytical work.
This concept was adopted long before 1999 by the IAEA. It was confirmed for UNMOVIC through
resolution 1284 in 1999.
The process now facing us – Iraq –
and the Security Council – would be much facilitated, as I said, if Iraq
decided that a new chapter was to be started.
If Iraq were to be active – not to use the modern term “proactive” – in
creating the conditions in which the world would gain confidence that the WMD
programmes
and all
proscribed items had been eradicated or were being eradicated, Iraq could again resume its normal place in
the Middle East and among UN Member States.
We see various statements and reports, which express the positive
conviction that Iraq retains biological and chemical weapons and missiles of a
range over 150 kilometres. I am
sometimes asked what is UNMOVIC’s conclusion.
My answer has been that if we had solid evidence that Iraq has weapons
or other items which are prohibited, we would report it to the Security
Council. We do not have such solid
evidence, but the inspection reports and other evidence we have do not allow us
to exclude that weapons and other proscribed items still remain. If they did, we would not need
inspections. Rather they still raise
many questions, show many inconsistencies.
Our conclusion is the same as that of the Security Council, which refers
in resolution 1284 not to remaining weapons but to “unresolved disarmament
issues” and demands inspection which may uncover weapons or other proscribed
items or produce evidence that excludes the existence of WMD and other
proscribed items.
What credibility is there in
intelligence reports which affirm the existence of WMD or other proscribed
items? We have no reason to pronounce
ourselves on them, unless we have evidence that is relevant. They may or may not be correct. Without being asked to assess the evidence
they are built on, we cannot pronounce ourselves. What we can do, however, if we resume inspections, is to seek to
verify assertions by various intelligence agencies, whether they are given
publicly or confidentially to us. Of
course, where sites have been indicated publicly, it is not likely that they
will contain anything proscribed when inspectors arrive. Where sites have been indicated to us
confidentially or suggested to us by overhead surveillance, an inspection
leading to a denial of access would be an extremely serious matter.
Access to sites has to be – I am now
citing the UN resolutions – “immediate, unconditional and unrestricted”. Why?
If there are restrictions on which sites can be visited, there would be
“sanctuaries”. This would reduce the
credibility of inspections. Why
unconditionally? If you were allowed
only on condition of not bringing measuring instruments of various kinds, it
would throw doubt upon the credibility of the inspection. And if access were not to be “immediate”, it
might suggest that relevant material or document or computer diskettes were
being concealed. Again, it would throw
doubt upon the credibility of the inspection.
Thus, when Iraq asks for inspection
and states at the same time that it has no proscribed items or activities, it
should welcome effective – immediate, unconditional and unrestricted
inspection. Only such inspections have
high credibility.
Let me say some words about evidence and the burden of proof.
As I noted a moment ago,
intelligence may be very important, but if it is not sustained by evidence, it
remains allegations. It is our job to
try to verify plausible allegations.
At the other end, declarations by
Iraq are not evidence. These, too, may
be very important, but they have to be sustained by evidence from the
inspection of sites and/or examination of documentary evidence presented or the
interviews of people with relevant knowledge.
An issue that turns up not
infrequently in the discussion of evidence is where the so-called “burden of
proof” lies.
Mr. Rumsfeld, the US Secretary of
Defense, has rightly observed that “the absence of evidence is not the evidence
of absence”. In simpler terms: Even when you do not find anything, you
cannot necessarily draw the conclusion that there is nothing. This is what Iraq has sometimes claimed we
must do. If inspectors cannot prove
there exists some proscribed activities or items Iraq submits, they must
conclude there are none: The inspectors
have the burden of proof. Neither
UNSCOM nor UNMOVIC has accepted this argument.
The case of biological weapons show how wrong it would have been. The declarations which claimed that
biological weapons were not weaponized would have had to be accepted – as long
as they were not disproved. Yet, we
have learnt how misleading these declarations were.
It may well be true, as has been
argued, that it is hard for Iraq – as for anybody – to prove that an item does
not exist. However, it must be
recognized that, in its archives, Iraq must still have access to most relevant
budgetary documents, plans, records, contracts, directives, instructions,
accounts, letters of credit, bills of transport, etc. Moreover, Iraq has access to most of the staff who have dealt
with this vast documentation and, indeed, with the weapons programmes. In most cases – some would say in all cases
– this should enable the Iraqi side to present material supporting,
supplementing or correcting the declarations it has made earlier. It should be recognized that the Iraqi side
has often exerted laudable effort to do this.
But on many issues, it has simply claimed there is nothing to show. These are the problematic cases. UNMOVIC, receiving declarations with
sometimes scant or contradictory evidence or no supporting material from
authorities, which have regrettably often been found to understate or mask, cannot
go before the Security Council and suggest that the Council should have
confidence in Iraq’s declarations simply because they have not been proven
wrong.
Under the basic resolution 687
(1991), UNMOVIC is to verify Iraq’s declarations. If adequate evidence in their support is not presented or
otherwise available, the declarations cannot be verified. The lack of verification cannot be remedied
by some legal presumption. The result
is simply and regrettably that UNMOVIC and the Security Council cannot have
confidence in the declarations.
It is hoped, of course, that if
inspections resume, Iraq will do its utmost to present credible evidence in
support of past or new declarations or, indeed, to present proscribed items to
be destroyed, removed or rendered harmless.
The problem of implementing the Security Council’s resolutions about
Iraq seems currently too often described simply as getting inspections started
again, after which a fast track is supposed to lead automatically to the
suspension and lifting of sanctions. It
is necessary to think more on the substance we are dealing with. The Security Council demands that
inspections should resume to ensure that all proscribed activities or items are
eradicated and that no new ones are created.
Thus, the focus needs to be on the reliable eradication of proscribed
items – on disarmament – and evidence that it has occurred or is occurring.
A great deal is at stake in the
Iraqi question. First, the welfare of
the Iraqi people, which could have had their living standards restored even in
1992, if there had been from the beginning cooperation to fully eradicate the
WMD programme. Second, there is the
issue of proliferation. If the Security
Council were to give up its ambition reliably to eradicate Iraq’s WMD
programme, it would send the wrong signal to the world that wants disarmament,
not proliferation! Thirdly, the
authority of the Security Council is at stake.
If it cannot come to unity and effective action, then the highest world
body responsible for security would have failed. During the Cold War, we were used to that. After President Bush the elder succeeded in
1990 and 1991 to bring the Council together, we had had greater hopes. Lastly, the institution of international
inspection is at stake. If it does not
succeed in the case of Iraq, where it has extremely far-reaching rights and is
– or should be – backed by the Security Council, the conclusion would be that a
state determined to defeat inspections can do so.