SECURITY COUNCIL
Distr.
GENERAL
S/1999/356
27 March 1999
ORIGINAL:ENGLISH
LETTER DATED 27 MARCH 1999, FROM THE CHAIRMAN
OF THE PANELS ESTABLISHED PURSUANT TO THE NOTE BY
THE PRESIDENT OF
THE SECURITY COUNCIL OF 30 JANUARY 1999 (S/1999/100)
ADDRESSED TO
THE PRESIDENT OF THE SECURITY COUNCIL
With reference to the note by the
President of the Security Council (S/1999/100), I have the honour to attach the
final report of the panel on disarmament and current and future ongoing
monitoring and verification issues (annex), which was adopted today, 27 March
1999.
As soon as the panel on humanitarian
issues and the panel on prisoners of war and Kuwaiti property conclude their
work, I will be ready to present the three reports to the Security Council.
(Signed) Celso L. N. AMORIM
Ambassador
Annex
REPORT OF THE FIRST PANEL ESTABLISHED PURSUANT TO THE NOTE BY THE PRESIDENT OF THE SECURITY COUNCIL ON 30 JANUARY 1999(S/1999/100), CONCERNING DISARMAMENT AND CURRENT AND FUTURE ONGOING MONITORING AND VERIFICATION ISSUES
1. The
panel on disarmament and current and future ongoing monitoring and verification
issues, established pursuant to the note issued by the President of the
Security Council on 30 January 1999 (S/1999/100), is submitting its report to
the Security Council in accordance with paragraphs 1, 2, 3 and 4 of the
aforementioned note.
I) Mandate, composition, working methods and
plans of work
2. The
panel was constituted in the context of increasing concern, among Security
Council members, with the interruption of United Nations activities in Iraq in
the area of disarmament/ongoing monitoring and verification, in particular
since mid-December. During the
discussions in the month of January, Security Council members felt that it was
urgent to consider the parallel objectives of re-establishing an effective
presence of the United Nations and the International Atomic Energy Agency
(IAEA) in Iraq in the area of disarmament/prevention of development of
proscribed weapons and addressing the humanitarian needs of the Iraqi
people. In parallel, the issues of
prisoners of war and Kuwaiti property were also brought to the fore.
3.
On 30 January 1999, the Security
Council decided that it would be useful to establish three separate panels on
Iraq and to receive recommendations from them no later than 15 April 1999. In paragraph 2 of document S/1999/100, the
Security Council invited Ambassador Celso L. N. Amorim of Brazil to chair each
of the panels.
4. The
constitution of the panel on disarmament and current and future ongoing
monitoring and verification was defined in paragraph 4 of document S/1999/100,
which reads as follows: "The first panel, on disarmament and current and
future ongoing monitoring and verification issues, would involve the
participation and expertise from the United Nations Special Commission, the
International Atomic Energy Agency, the United Nations Secretariat, and any
other relevant expertise. The panel
would assess all the existing and relevant information available, including
data from ongoing monitoring and verification, relating to the state of
disarmament in Iraq".
5. As
announced by the Chairman on 12 February 1999, the first panel was composed as
follows: Ichiro Akiyama, Jacques Baute, Kaluba Chitumbo, Ron Cleminson, Rachel
Davies, Jayantha Dhanapala, Charles Duelfer, Roberto Garcia Moritan, Gennady
Gatilov, Gabriele Kraatz-Wadsack, Hideyo Kurata, Liu Jieyi, Johan Molander, Jack
Ooms, Daniel Parfait, GianPiero Perrone, Horst Reeps, Paul Schulte, Tom Shea,
and Nikita Smidovich.
6. The
panel met from 23 to 27 February and from 22 to 27 March. Taking into account paragraph 3 of document
S/1999/100, the Chairman held consultations with panel participants and members
of the Security Council on appropriate working methods and plans of work. The panel decided that it should assess,
from a technical point of view and a broad perspective, the work of the United
Nations and IAEA in Iraq in the area of disarmament /ongoing monitoring and
verification of proscribed weapons. To
this end, the panel considered information from a variety of sources and heard
short briefings on different aspects: (1) the ongoing monitoring and
verification regime; (II) the export/import monitoring mechanism; (III) the
nuclear, missile, chemical weapons and biological weapons areas; and (IV)
overhead imagery.
7. In
accordance with the note by the President of the Security Council, the main
objective of the panel was '"to make recommendations to the Security
Council on how, taking into account relevant Security Council resolutions, to
reestablish an effective disarmament/ongoing monitoring and verification regime
in Iraq. This mandate reflects the
Security Council assessment that an effective presence of inspectors on the
ground remains the most effective way to provide assurance that Iraq does not
retain, acquire or rebuild its proscribed weapons programmes.
II) Introductory questions
8. The
phrasing of the mandate (how... to re-establish", etc.) carries with it an
implicit recognition that the task of getting inspector's back to Iraq is not self-evident. In effect, the panel has been asked to
contribute to such an objective by devising technically feasible options which
the Security Council may choose to implement.
The panel recognized that the scope of its mandate implied that it would
devise its recommendations from a technical, and not a political, point of
view, while conceding that it could not ignore the political and indeed the
legal context in which those deliberations were taking place. The panel deliberated against the background
of discussions in the Council, where a number of proposals on how to address
the present situation are still under consideration. On the one hand, a clear line had to be drawn between what is
technical, and therefore germane to the panel's work, and what Is political in
its content, which is the exclusive province of the Security Council. On the other hand, the panel had to be
conscious that some of the technical options may propitiate political
consequences if the Security Council so decides.
9.
In the context of the debate on
the above mentioned proposals, the President of the Security Council for the
month of January presented the following question to Coundil members:
"while recognizing that there may be disarmament tasks to be carried out,
wouldn't it be possible to perform those tasks, with a renewed approach, under
a reinforced Ongoing Monitoring and Verification (OMV) system (With disarmament
elements factored into it)?" This
question helped to focus the discussions on ways to move forward in the
short-term and may be viewed as being at the drigin of the establishment of the
panel on disarmament/ongoing monitoring and verification. The same question was presented to panel
members.
10. Always
bearing in mind the mandate conferred upon it by the Security Council, the
panel decided that it should first achieve an understanding of the current
status of disarmament/ongoing monitoring and verification in that country. Such a discussion could neither be
exhaustive nor excessively detailed, but a broad overview of the work
undertaken by the United Nations and IAEA in Iraq to date, including their
cooperative arrangements, was considered useful.
11. A
further step was to evaluate, bearing in mind the basic elements of the OMV
regime, as conceived in the plans approved by resolution 715, as well as the
need of ensuring the full implementation of all relevant Security Council
resolutions regarding Iraq, in particular resolutions 687, 707, 715 and 1051,
the possibility of addressing remaining disarmament issues/areas of uncertainty
through their integration into a reinforced OMV regime. By providing a satisfactory answer to the
fundamental question of whether it is feasible to factor those outstanding
issues into an OMV developed to its full potentiality, while avoiding policy
judgements, the panel might be enlarging the scope of options for the Security
Council.
III) Disarmament
12. Panel
members had it clear that it was not their objective to evaluate, in its minute
detail, every single aspect of each particular proscribed weapons area. Such an assessment had been made on a number
of occasions by the competent institutions in charge of the disarmament/ongoing
monitoring verification work in Iraq and is included in various reports to the
Security Council, which were presented to the panel as part of the
"existing and relevant Information available". Therefore, what follows is not an attempt to
summarize such assessments (much less to substitute for existing papers) but an
indication of subjects discussed, in relation to which different shades of
opinion were expressed.
13. The
panel heard briefings by experts from the United Nations Special Commission
(UNSCOM) and the IAEA on the current status of disarmament/ongoing monitoring
and verification in the four proscribed weapons areas (nuclear, missiles,
chemical, biological). These briefings
were, concentrated on specific priority disarmament issues. In the case of UNSCOM this reflected its
understanding of the desire of the Council to focus on selected important parts
of the requirements of its resolutions.
UNSCOM has decided to work on the basis of priority issues, setting aside
other aspects such as proscribed weapons research and development activities,
procurement, etc. The satisfactory
resolution of these priority questions would considerably increase the level of
confidence of UNSCOM's overall verification.
If the priority issues are not satisfactorily resolved, then it is
likely that the settlement of other outstanding disarmament issues will assume
greater importance. The Iraqi
Government provided the Chairman with some documentation with its views on the
disarmament/ongoing monitoring and verification process. This documentation was also considered by
the panel.
Nuclear
Weapons
Achievements
14. The
IAEA has been able, in the course of its eight years of extensive inspection
activities, to develop a technically coherent picture of Iraq's clandestine
nuclear programme covering the stages from the production and procurement of
natural uranium compounds, through Iraq=s development of enrichment processes,
to the design and experimental work for the eventual weaponization of highly
enriched uranium. Iraq=s programme had
been very well funded and was aimed at the development and production of a
small arsenal of nuclear weapons, but there were no indications that Iraq had
achieved its programme's objective.
Most of the IAEA activities involving the destruction, removal and
rendering harmless of the components of Iraq=s nuclear weapons programme which
to date have been revealed and destroyed were completed by the end of
1992. In February 1994, the IAEA
completed the removal from Iraq of all weapon-usable nuclear material
essentially research reactor fuel. On
the basis of its findings, the Agency is able to state that there is no
indication that Iraq possesses nuclear weapons or any meaningful amounts of
weapon-usable nuclear material or that Iraq has retained any practical
capability (facilities or hardware) for the production of such material.
Current
status/remaining questions
15.
In the nuclear weapons area,
questions remain with regard to the lack of certain technical documentation,
external assistance to Iraq=s clandestine nuclear weapons programme and Iraq=s
abandonment of its nuclear weapons programme.
However, the uncertainty deriving from those few remaining concerns does
not present any technical impediment to the full implementation of the IAEA's
OMV plan. Iraq has yet to adopt the
necessary measures to implement its obligations under relevant Security Council
resolutions and enact penal laws to secure their enforcement. This issue applies to the other proscribed
weapons areas as well.
Proscribed
Missiles
Achievements
16. With
regard to items selected as key for the purpose of the verification of the
material balance of proscribed missiles and related operational assets, UNSCOM
was able to destroy or otherwise account for: (a) 817 out of 819 imported
operational missiles of proscribed range; (b) all declared mobile launchers for
proscribed Al Hussein class missiles, including 14 operational launchers; the
disposition of 9 of the 10 imported trailers used for the indigenous production
of mobile launchers; and the destruction of 56 fixed missile launch sites; (c)
73 to 75 chemical and biological warheads of the declared 75 operational
special warheads for Al Hussein class missiles; 83 of the 107 imported and some
80 of the 103 indigenously produced conventional warheads declared by Iraq to
be in its possession at the time of the adoption of resolution 687.
17. As
a means to compensate for Iraq's failure to present required evidence for the
establishment of a material balance of the critical components for the
indigenous production of proscribed missiles, UNSCOM has established a rough
correlation between the total estimated weight of engine components and, the
total weight of ingots and other remnants presented by Iraq as a result of its
unilateral destruction. UNSCOM has also
concluded that Iraq does not possess a capability to indigenously produce
either BADR-2000 missiles or assets known as the >Supergun'. UNSCOM has obtained a broad understanding of
Iraq=s efforts to develop a missile delivery system for nuclear weapon's and a
detailed picture of Iraq's procurement effort for its proscribed missile
programmes.
Current
status/remaining questions
18. In
the missiles area, the main concerns mentioned during the briefing related to
the determination whether or not the current assessment of the quantity of
special warheads identified among the remnants excavated accounts for all
special warheads declared to have been produced by Iraq or if the declaration is
indeed correct. Satisfactory resolution
of the following issues was considered essential for the achievement of a
satisfactory material balance: a) the reasons why no remnants of 50
conventional warheads declared as unilaterally destroyed were recovered; b)
accounting for proscribed propellants claimed to have been unilaterally
destroyed; c) accounting for the unilateral destruction of seven indigenously
produced missiles; d) accounting for the unilateral destruction of combustion
chamber/nozzle assemblies for indigenously produced missiles.
Chemical
Weapons
Achievements
19. UNSCOM
has supervised or been able to certify the destruction,, removal or rendering
harmless of large quantities of chemical weapons (CW), their components and
major chemical weapons production equipment as follows: (a) over 88,000 filled
and unfilled chemical munitions; (b) over 600 tonnes of weaponized and bulk CW
agents; (c) some 4,000 tonnes of precursor chemicals; (d) some 980 pieces of
key production equipment; (e) some 300 pieces of analytical instruments. The prime CW development and production
complex in Iraq was dismantled and closed under UNSCOM supervision and other
identified facilities have been put under monitoring. It was pointed out that UNSCOM has been able to establish
material balances of major weapon-related elements of Iraqs CW programme only
on the basis of parameters as declared by Iraq but not fully verifled by
UNSCOM.
20. UNSCOM
has been able to make considerable progress in the verification of other CW-related
activities in Iraq, among them the uncovering of Iraq's VX project, CW research
and development projects, Iraq=s procurement network and efforts for its CW
programme. On the basis of all these
findings, UNSCOM obtained a good understanding of the major parameters of
Iraq's CW programme.
Current
status/remaining questions
21. In
the chemical weapons area it was noted during the briefing that satisfactory
resolution is required especially with regard to: a) discrepancies with Iraq's
declarations on the expenditure of CW munitions in the 80s, as indicated by
figures contained in a document detailing consumption of special munitions by
Iraq; b) evidence of 550 artillery shells filled with mustard declared to have
been lost shortly after the Gulf War; c) accounting for flve hundred R-400
bombs, which could be done through the verification of the disposition of the
parachute tail sections of those bombs; d) Iraqi declarations on the production
and weaponization of the chemical agent VX, in particular with regard to the
military plans for the use of VX during various periods, the different
precursors available and the synthetic routes pursued; and e) the material
balance of CW production equipment.
Biological
Weapons
Achievements
22. UNSCOM
uncovered the proscribed biological weapons programme of Iraq, whose complete
existence had been concealed by Iraq until 1995. This and subsequent work has permitted it to obtain significant
insights into Iraq's biological warfare capabilities, including a broad understanding
of the main delivery systems. UNSCOM has also gained a detailed, albeit
incomplete, picture of Iraq=s procurement activities for its biological warfare
programme.
23. UNSCOM
ordered and supervised the destruction of Iraq=s main declared BW production
and development facility, Al Hakam.
Some 60 pieces of equipment from three other facilities involved in
proscribed BW activities as well as some 22 tonnes of growth media for BW
production collected from four other facilities were also destroyed. As a result, the declared facilities of
Iraq's BW programme have been destroyed and rendered harmless.
Current
status/remaining questions
24. In
the biological area, Iraq=s Full Final and Complete Disclosure (FFCD) has not
been accepted by UNSCOM as a full account of Iraq=s BW programme. A full disclosure of the scope and nature of
the programme was considered outstanding by UNSCOM. The briefing indicated that this evaluation was corroborated by
technical evaluation meetings called by UNSCOM including at the request of
Iraq. The briefing also indicated that
critical gaps need to be filled to arrive at a reasonably complete
picture. It has also been recognized
that due to the fact that BW agents can be produced using low technology and
simple equipment, generally dual-use, Iraq possesses the capability and
knowledge base through which biological warfare agents could be produced
quickly and in volume.
25. The
elements presented above indicate that, in spite of well-known difficult
circumstances, UNSCOM and IAEA have been effective in uncovering and destroying
many elements of Iraq=s proscribed weapons programmes in accordance with the
mandate provided by the Security Council.
It is the panel's understanding that IAEA has been able to devise a
technically coherent picture of Iraqs nuclear weapons programme. UNSCOM has achieved considerable progress in
establishing material balances of Iraq=s proscribed weapons. Although important elements still have to be
resolved, the bulk of Iraq's proscribed weapons programmes has been
eliminated. In this connection,
reference was made to a possible "point of impasse" in the further
investigation of these issues under the current procedures which might
correspond to an apparent diminishing return In recent years.
26. Although
there were differences in the panel members' perception and understanding of
remaining issues, including as regards their relevance to the overall
verification process, It is evident that a satisfactory resolution of certain
areas, in particular those identified as priority, would contribute to the
overall assurance that any disarmament and/or monitoring and verification
mechanism could provide. Or, in other
words, there seems to be an inverse correlation between resolution of those
issues by Iraq and the overall degree of intrusiveness of the regime to be
implemented.
27. It
has been indicated on various occasions that "some uncertainty is
inevitable in any country-wide technical verification process which aims to
prove the absence of readily concealable objects or activities. The extent to 'which such uncertainty is
acceptable is a policy judgement".
Both UNSCOM and IAEA have therefore been adopting a pragmatic approach
which assumes that 100% of verification may be an unattainable goal.
IV) Ongoing Monitoring and Verification
28. The
OMV system was conceived to provide assurance that Iraq is not undertaking
proscribed activities. The plans
approved by resolution 715 (docs.
S/22871/Rev.1 and 22872/Rev.1) establish the mechanisms for the monitoring
and verification of Iraq. The dynamic
nature of these mandates implies that procedures and practices under the Plans
may be continuously adjusted. Key among
the tools given by the Security Council to both IAEA and UNSCOM under the Plans
are full and free access at any time to all sites, facilities, areas,
locations, activities, materials and other items, including documentation, and
to all persons and all Information that, in the judgement of IAEA and UNSCOM,
may be necessary for their monitoring activities.
Adopted
procedures and practices to date
29. The
IAEA's monitoring plan has been operational since August 1994. Since that time, work has continued in order
to increase the scope and technology of OMV measures, although it is recognized
that any OMV mechanism will always encompass a component of disarmament of
varying degrees. The Agency's OMV plan
is designed to give assurances as to the absence of prohibited equipment,
materials and activities. The plan
takes fully into account the extensive technological expertise developed by
Iraq in the course of its clandestine nuclear programme. The Plan also takes into account the
uncertainties referred to in paragraph 15 above and is predicated on the
assumption that Iraq retains the capability to exploit, for nuclear weapons
purposes, any relevant material or technology to which it may gain access in
the future.
30. The
design and operation, since 1994, of UNSCOM's monitoring system have been based
on a number of assumptions regarding the conditions under which the Plan for
OMV would be implemented. It was
believed that, before proceeding exclusively to monitoring and verification
activities, the Commission would receive, from Iraq, full and complete
disclosures of all its proscribed activities and capabilities and that the
identification and disposal of all proscribed weapons, materials and programmes
would have been achieved. Based on this
expectation, the way UNSCOM had been pursuing the monitoring and verification
system was not designed to search for proscribed weapons and materials. This task has been carried out by UNSCOM
separately through disarmament activities and Investigations. In view of this Atwo-track@ approach UNSCOM
was able to conduct its monitoring activities in the least Intrusive manner,
consistent with the objectives for ongoing monitoring and verification set
forth by the Security Council.
Current
status
31. Inspectors
from both the Agency and the Special Commission departed from Iraq on 16
December 1998. As a consequence, the
OMV plans are not operational at this moment.
V) Relationship between disarmament
and ongoing monitoring and verfflcation
Integration,
including legal aspects
32. The
briefings referred to above demonstrated clearly that although disarmament and
monitoring and verification address different dimensions of the broader
problematic of disarmament/reacquisition of proscribed weapons, both can be
implemented through the use of the same - or similar - tools. Disarmament assumes the existence of
proscribed weapons and/or capabilities, which must be located, accounted for
and, eventually, disposed of. The
monitoring and verification system's immediate goal is to attempt to determine
that proscribed activities are not being carried out. Experience has shown, however, that actions in
disarmament/ongoing monitoring and verification can be mutually supportive, and
that there are many similarities and complementarities between them. Both can be achieved, in an integrated fashion,
through the use of on-site inspections with full access, including no-notice
inspections, sample analysis, aerial surveillance, evaluation of documentation,
interviews, installed monitoring equipment, or, most effectively, a combination
of them.
33. Discussions
in the panel have also revealed that, from a technical standpoint, the ongoing
monitoring and verification is not incompatible with the continuing search for
satisfactory resolution of outstanding elements from proscribed weapons
programmes. It was made clear that
UNSCOM's decision to separate aspects related to monitoring from those related
to disarmament had been taken at the executive level, based on certain
assumptions that seemed to be warranted at the time. It was recognized however, that it is technically possible to
carry out further the resolution of remaining issues mentioned above under the
framework of OMV, provided adequate arrangements are established to ensure the
full exercise of the rights contemplated by the Plans. The panel recognized that, due to different
degrees of confidence, more effort should be placed in areas which have caused
greater concern, as seems to be the case in the biological and some chemical
weapons areas. In order to be
effective, the reinforced OMV system should be able not only to certify that
present activities are in accordance with Security Council resolutions but also
to address unresolved issues, whenever necessary. Indeed, the retention of the right to investigate any aspect of
proscribed weapons programmes would be a fundamental element of the integrated
system. As in the case of disarmament,
cooperation by Iraq is essential.
Legal
framework
34. The
reinforced OMV system should be based on the full implementation of the plans
for ongoing monitoring and verification approved by Security Council resolution
715 (1991), provided the rights enshrined therein and In resolutions 687, 707
and 1051 are fully exercised. The plans
establish that the IAEA and UNSCOM should, through inspections and aerial
overflights, as well as through the provision of information by Iraq, monitor
and verify that activities, sites, facilities, material and other items, both
military and civilian, are not used by Iraq in contravention of its obligations
under relevant Security Council resolutions.
It is understood that, for operational reasons, the full potential of
UNSCOM's plan has never been explored.
The existing plans provide an adequate legal framework for implementing
a rigorous and effective system of monitoring and verification, and thus for
integrating into it the investigation of unresolved issues regarding proscribed
weapons programmes.
35. The
possibility of continuing the investigation of proscribed weapons programmes
under the reinforced monitoring regime is explicitly provided for in the plans.
Paragraphs 22 and 23 of the plan
presented by UNSCOM and 36 and 37 of the IAEA's Plan refer to the discovery of
any item, including documentation, or activity in contravention of resolutions
687, 707 or of the Plan. Paragraph 24
of UNSCOM's Plan and 38 of.the IAEA's Plan referred to above instruct UNSCOM
and IAEA to bring to the attention of the Security Council any findings that
indicate that Iraq is not in compliance with its obligations under resolutions
687 and 707. From a legal perspective,
the ability to carry out specific operations aimed at clarifying certain
questions and detecting if there is an attempt to retain proscribed items which
escaped the destruction/removal, rendering harmless process is fully
guaranteed.
Technical
feasibility and necessary arrangements
36. The
IAEA's OMV activities have been using essentially the same procedures and
techniques initially employed to detect the presence of prohibited equipment,
materials and activities. These
procedures must not only credibly ensure such absence at routinely inspected
locations, but also provide a significant probability of detection at other
locations. Further clarification
of remaining questions can therefore be
integrated into the IAEA's Plan, provided the Agency is able to fully exercise
the rights of access enshrined in the Plan.
37. In
the case of the other proscribed weapons areas, satisfactory resolution of
remaining issues under the OMV plan would require modifications in some
assumptions for the operation of the OMV plan, procedures and practices that
were being used to date. More
specifically, changes in the basic assumptions of the OMV plan would require
the strengthening of the monitoring and verification system to maintain its effectiveness
so that the Security Council mandate can be carried out. As stated earlier, the OMV plan, as it was
being implemented before the interruption of inspections, was based on the
assumption that: a fairly complete knowledge of the past would have been
obtained, not having been designed to explicitly resolve remaining disarmament
issues. The positive resolution of
priority issues related to proscribed activities before the starting of the
monitoring and verification system would surely contribute to an increase in
the degree of confidence that the system would otherwise provide. Such uncertainties, however, could be offset
through a reinforced OMV, based on the assumption that Iraq has the knowledge
and technical expertise to exploit, for proscribed purposes, any relevant
materials or technologies which it may retain or gain access to In the future.
38. IAEA
and UNSCOM have both contemplated the possibility of integrating remaining
disarmament issues into their OMV plans.
In paragraph 34 of its latest report (doc. S/1999/127) the Agency states that "provided that it is able
to exercise its right to full and free access in Iraq, the IAEA is in a
position to proceed with the full implementation of its OMV plan and, as part
of that plan, to investigate further the remaining questions and concerns and
any other aspect of Iraq's clandestine nuclear programme arising out of new
information acquired by the IAEA".
39. UNSCOM,
in turn, points out in its latest reports that "the present review of the
OMV system takes into account the possibility that the mandated objective of
the full accounting of Iraq=s proscribed weapons and verification of Iraq's
prohibited programmes will not be achieved but the Commission may,
nevertheless, be required to operate its OMV system under the shadow of Iraq
possibly retaining prohibited materials"(paragraph 23 of S/1999/94).
40. Panel
members agreed that the adoption of a reinforced OMV might represent a
refocusing and evolution of patterns of work as pursued by UNSCOM. The reinforced OMV system should make maximum
use of synergies, cross checks and cross fertilizations between the activities
of the four disciplines (nuclear, biological, chemical, missile) and the
Export/import Monitoring Mechanism in order to ensure confidence in the
continuing absence of proscribed activities as well as clariflcation and
progressive resolution of disarmament issues.
It was pointed out that the benefit of the integrated approach would be
that all information gathered from these concurrent activities would be
analyzed systematically, considered against other data and examined in a
multidisciplinary context. The net
effect could be to enable rapid and effective work towards confirmation of
Iraq=s disarmament status, provided the rights set forth in Security Council
resolutions 687, 707,, 715 and 1051 are fully respected.
41. Changes
on the ground resulting from the adoption of a reinforced OMV would be related
rather to the intensity, frequency, intrusiveness and methods than to rights,
which would remain unaltered, since all actions required are already permitted
under relevant Security Council resolutions.
42. Panel
members acknowledge that this evolution of UNSCOM's work will have implications
for its organizational structure and resourcing, which it might be premature to
address in detail at this stage.
However, it was considered useful to present some of the parameters
under which unresolved or not sufficiently resolved disarmament issues can be
integrated into OMV:
a)
Full implementation of the rights enshrined in the OMV plans,
particularly full access to locations, individuals and information as well as
the right to implement any relevant technology;
b)
Re-establishment of baselines of what Iraq had acquired and achieved in
each of the proscribed weapons areas on the basis of the knowledge so far
accumulated;
c)
Identification of critical milestones at which any resumption of
proscribed activities could be detected, as a means to address the potential
consequences of possible uncertainties,
d)
Further development of lists of equipment/procedures/methods and a corresponding
degree of intensity/frequency/intrusiveness bearing in mind the amount of
intellectual property Iraq acquired; prioritization of methodology accordingly;
e) Regular
inspections of military sites;
f) Increase
in the number of inspector and supporting staff taking into account technical
expertise and-wide geographical representation;
g) Improvement
of mobility/access through the establishment of regionalcentres and/or the use
of fixed and rotary wing aircraft;
h) Enhancement
of in-house scientific analytical capability to increase speed and independence
of results;
i) Improvement
of structures to promote linkages and information flows
across disciplines and activities; and
J) Identification
of a long-term, adequate and independent source of funding.
43. It
was noted that Iraq should confirm the rights and privileges of UNSCOM and IAEA
inspectors and support staff, and, consistent with past experience, confirm
that the health and safety of said personnel will be protected at all times
when these Individuals are within the territory of Iraq.
44. Discussions
on the specific question of techniques and tools were held. Although it was recognized that this debate
was of a preliminary character, some time was devoted to issues related to
efficiency, cost-effectiveness and the degree of intrusiveness of the different
techniques. In this regard, it was
noted that, although not a substitute for on-site inspections, overhead imagery
may play, for instance, a very powerful role in providing indications of the
presence of prohibited activities. The
role of such a means in providing timely and accurate reference data to
support, supplement and/or enhance inspection activities had already been
proven in Iraq. The panel concluded
that overhead imagery has already played an important role in the effective
implementation of the OMV plans and that it should be exploited to the limit of
its technical capabilities. There would
be advantages in the United Nations and the IAEA being able to derive
independent conclusions therefrom.
45. The
Export/Import Monitoring Mechanism would remain a critical component of the
reinforced OMV. This system of
infbrmation/notification would have to be reinforced and greater reliance would
have to be placed in the provision of information by suppliers, particularly if
conditions related to the volume of commercial transactions into Iraq are
changed. In any case, the lists of
dual-use equipment, the last version of which dates back to 1995, should be
revised. It has been noted that, due to
particularities in Iraq=s programmes of weapons of mass destruction, these
lists are already more comprehensive than those of the Chemical Weapons
Convention and other non-proliferation arrangements, such as the Missile
Technology Control Regime and the Australia Group.
46. For
the reinforced OMV system to achieve its objectives, Iraqi cooperation will be
necessary in particular in the sense of: a) providing immediate unobstructed
access to all locations by United Nations and IAEA teams; b) not interfering
with monitoring equipment; c) providing documentation to determine the
legitimacy of activities under monitoring; d) providing all available
information and materials related to past proscribed activities; e) ensuring
access to personnel involved in such activities for interviews without
interference; f) ensuring that relevant evidence is not concealed, removed or
destroyed; g) ensuring access by fixed or rotary wing aircraft; h) adopting
national legislation, as appropriate.
At the same time, Member States are expected to cooperate fully for the
effective functioning of the system.
VI) Organization and methods
General
observations
47. The
panel had in mind, in making its suggestions in this and other areas,- that it
should work within the existing legal framework for the implementation of
Security Council resolutions related to proscribed weapons in Iraq. The panel also notes that there are
proposals before the Security Council, which have also been mentioned during
the panel meetings, that may imply changes in Security Council
resolutions. It will be a matter for
the Security Council to judge upon the desirability of their adoption. Nevertheless, the panel thought it worth
examining adjustments in current practices and procedures within the present
legal framework. The nomenclature in
the following paragraphs was used In the discussions without prejudice to any
future Security Council decision.
48. The
panel held its discussions an this subject bearing in mind the experience
accumulated during the past eight years of inspections but also the possibility
of a reinforced OMV system as delineated above. In the course of debates on how to improve the operation of the
system, reference was made to the desirability of reinforcing overall
coordination, including within the UN system, without prejudice to a close
relationship between the executive body and the Security Council. This implies the possibility of the Executive
Chairman bringing any urgent matter to the attention of the Security
Council. As a subordinate organ of the
Security Council, the executive body derives its effectiveness and authority
from this close relationship, both in terms of political supervision and of
providing support for its activities.
49. ln
this context, suggestions were made, inter-alia, with regard to the possibility
of restructuring the Commission as a collegiate body. Without prejudice of the close relationship referred to in paragraph
48, the Commission could provide for independent advice, guidance and general
oversight, both at expert and diplomatic levels, on carrying out activities
under the monitoring and verification plan and any.problems, referred to it,
that might arise in that connection. It
would carry out functions entrusted to it by the Security Council, possibly
including: a) consideration of any matter relating to the execution of the
monitoring plan referred to it by the Security Council for advice; b)
consideration of regular reports from the Executive Chairman on the conduct of
operations; c) consideration of particular issues referred to it by the
Executive Chairman with a view to their resolution or to a recommendation to
the Security Council; d) consideration of complaints by Iraq regarding the
conduct of inspections; e) establishment of rosters of experts for possible
selection to serve on monitoring operations; and f) advice on personnel policy.
50. Recognizing
the role of the Secretary-General in this regard, the Commission's composition
would also be reviewed by the Security Council so that it possibly includes a
core of technical experts; representatives from among Security Council members;
the Under-Secretary-General for Disarmament Affairs and possibly other
representatives of the Secretariat. It
is thought that among the technical experts a representative of the IAEA and of
the Organization for the Prohibition of Chemical Weapons (OPCW) might be
included. In order to ensure proper
liaison of the collegiate body with the Security Council, the meetings of the
Commission might be presided over by a representative of a non-permanent member
of the Security Council. The Commission
should meet at least every three months (apart from emergency meetings).
51. Some
suggestions were made that, at the operational level, the implementation of the
reinforced OMV should be entrusted to a renovated UNSCOM, consistent with the
provisions of such a system. This may
have staffing Implications that were not considered at length by the
panel. It is understood that the
Baghdad Monitoring and Verification Centre (BMVC) would continue to play a
pivotal role and may have to be further reinforced. The renovated UNSCOM should ensure a clear United Nations
identity and be guided by the principles of full independence, rigour and
transparency in order to ensure the effectiveness of its work and credibility
of its results. It was felt that, at
this stage, due to the amount of knowledge acquired by UNSCOM, as well as to
the intrinsic interrelationship between the missile, biological and chemical
weapons fields, these tasks should remain concentrated on this renovated United
Nations body. Nevertheless it was noted
that organizations such as OPCW might contribute, under appropriate arrangements,
including through participation in the Commission. In the future, if Iraq becomes a party to the CWC, as urged in
Security Council resolutions, cooperation arrangements similar to those
currently associated with the work of IAEA in Iraq might be considered,
provided they are consistent with mandates set forth in relevant Security
Council resolutions, if the Security Council so decides.
Recruitment
52. A
central component in ensuring an effective and credible system is the
recruiting of staff who are technically competent, committed to the objectives
of the Security Council resolutions, impartial, and, if possible, have some
experience of inspections. A personnel
management strategy should ensure the optimum mix of qualifications, background
and of long-term and short-term staff.
Without prejudice to these requirements, staff selection should also
reflect the desirability of establishing broad national representation to the
extent possible. Cost efficiency and
technical effectiveness could be promoted by complementing permanent staff with
temporary staff selected, to the extent possible, within a roster of
specialists (see paragraph 49 above).
53. Appointments
for one year or more should continue to be made in terms of Article 101.3 of
the Charter of the United Nations. All
appointees would be regarded as International civil servants subject to Article
100 of the Charter. Taking into account
United Nations policy, recourse to cost-free peronnel should be limited. Efforts should be made to increasing,
wherever operationally possible, personnel employed directly by the United
Nations. All employees should be
subject to an enforceable Special Service Agreement. This will require full cooperation from Member States.
Training
54. Considerable
weight should be given to training needs with the objective of developing and
reinforcing core inspection skills and competences. Training programmes should encompass both technical and cultural
issues as well as relevant safety procedures.
Particular emphasis should be placed on the importance of understanding
national sensitivities in the course of Inspections. Emphasis should be given to structural pre-inspection training. For short-term appointments, on-the-job
training would be the regular practice.
Inspection planning and staffing should reflect those training
needs. Continuity in the field is
essential.
Equipment/technology
55. Appropriate
specifications should be established for all monitoring equipment, including
power units, to be installed in Iraq and on arrangements for its maintenance by
suitably qualified personnel.
Systematic and rapid selection and independent procurement of adequate
emerging monitoring technologies should be promoted, as appropriate.
Information
56. Information
has been recognized as an essential component of a reinforced ongoing
monitoring and verification regime, whether provided by Iraq, or generated by
inspections, or from any other source, including Member States. Internal handling of information should
reflect the absolute need to protect the confidentiality of operations planning
and to give assurances to providers that the sources and methods are being
properly protected. This requires clear
procedures for recipt, handling, storage and access to sensitive
information. Evaluation and assessment
of information collected should be rigorous and impartial. This can be facilitated by adopting clear
analysis concepts and methodologies, and by using a modem database and
computer-based analysis tools. The
greater the confidence in the security culture of the organization the more
information Member States are likely to provide.
57. Any
information should be assessed strictly on the basis of its credibility and
relevance to the mandate. The
substantive relationship with intelligence providers should be one-way only,
even if it is recognized that dialogue with providers may be necessary for
clarifications and refinement of assessments.
The OMV mechanism should not be used for purposes other than the ones
set forth in Security Council resolutions.
Other
practices and procedures
58. In
conducting inspections or monitoring operations, effectiveness should be the
primary consideration. A rigorous and
comprehensive approach should be adopted to planning and in-field activities
and should take into account the difficulties encountered in the past in Iraq,
including instances of obstruction and/or deception. At the same time unnecessary confrontation or disproportionate
reactions should be avoided.
59. Cooperative
arrangements among different disciplines should be promoted through the
development of structures to improve linkages and information flows across
disciplines and activities. The
composition of inspection/monitoring teams should reflect mission requirements. Confidentiality should be maintained during
all stages of the planning and execution phases. Within the limits dictated by that requirement, inspector's
should be appropriately briefed on the broader objectives of the project in
which their activities are inserted and should be given access to the reports
of the missions to which they have contributed.
60. The
Issue of relations with the media was raised.
The panel found that, ideally, there should be a single point of contact
with the press, which could benefit from the expertise of the existing UN
and/or IAEA public relations machinery.
Public comment by the verification entity and its personnel should be
limited and restricted to the factual.
Political evaluations or comments that carry obvious political
implications should be left to the Security Council.
VII) CONCLUSIONS/RECOMMENDATIONS
61. The
panel carried out its work bearing in mind the objective of presenting a
meaningful contribution to the Security Council on how to re-establish a UN
presence in Iraq in the area of disarmament/ongoing monitoring and
verification. The panel considered that
refocusing or 'relensing' the approach towards disarmament/ongoing monitoring
and verification, without departing from the existing framework of rights and
obligations laid down in Security Council resolutions adopted under Chapter VII
of the Charter, might offer the opportunity to enlarge the scope of policy
options for the Security Council. To
this end, the panel concentrated a great part of its work on discussing the
technical feasibility of a reinforced OMV system capable of addressing, through
integration, remaining unresolved disarmament issues. The panel concluded that such a reinforced OMV system, which
should include intrusive Inspections and investigation of relevant elements of
past activities, is viable.
62. The
framework for this system is well-known, encompassing Security Council
resolutions 687, 707, 715 and 1051. In
fact, what is being called a reinforced OMV is the OMV system itself as
conceived in the plans approved by resolution 715 developed to its full
potentiality. The panel points out that
there is no need to change resolution 715 to that effect.
63. Several
suggestions were made in relation to questions pertaining to organization and
methods of work, including institutional arrangements, bearing in mind the
reinforced OMV system. They are outlined in chapter VI of this report. The panel recommends that the Security
Council devotes appropriate attention to these ideas.
64. The
panel notes that the longer inspection and monitoring activities remain
suspended, the more difficult the comprehensive implementation of Security
Council resolutions becomes, increasing the risk that Iraq might reconstitute
its proscribed weapons programmes or retain proscribed items. A materialization of such a risk that is
attributable to the absence of inspections would have extremely negative
consequences for the credibility of international non-proliferation efforts in
general, and for the credibility of the United Nations and IAEA in particular.
65. It
has been repeatedly pointed out that UNSCOM's and IAEA's current inability to
implement their mandates in Iraq renders them unable to provide any assurance
that Iraq is in compliance with its obligations under Security Council
resolutions and that it is essential that inspection teams return to Iraq as
soon as possible. The current absence
of inspectors has exponentially increased the risk of compromising the level of
assurance already achieved, since it is widely recognized that the
re-establishment of the baseline will be a difficult task. The loss of technical confidence in the
system could become irretrievable. The
panel considers that the status quo is not a practical alternative and recommends
that efforts be made with a view to restoring an international inspection
regime in Iraq that is effective, rigorous and credible.
66. The
effectiveness of the monitoring and verification system depends on its being
comprehensive and intrusive. Rigorous
implementation is critically dependent upon the full exercise of the rights of
full and free access set forth in relevant Security Council resolutions. The monitoring and verification system is an
integral whole that can be meaningfully implemented only in its entirety. At the same time, mandates should be carried
out objectively in a technically competent and thorough manner with due regard
to Iraqi sovereignty, dignity and sensitivities, including religious and
cultural ones, as well as those related to commercial confidentiality.
67. Given
the difficulties experienced in the past, this will require firm and active
support by the Security Council for the implementation of the reinforced OMV
system. implementation of the OMV
system is predicated on Iraqi cooperation.
Ensuring appropriate cooperation by Iraq means that, in one way or
another, Iraq will have to be engaged by the Security Council, sooner rather
than later. Of course the OMV system
cannot be conceived as an enticement for Iraq to invite it into its
territory. Indeed the reinforced OMV
would be, if anything, more intrusive than the one so far practiced. It is in the hands of the Security Council
to devise ways of ensuring that Iraq accepts such monitoring and verification.
68. In
summary, the panel agreed on the possibility of an integrated system that is a
reinforced OMV within the existing legal framework of resolutions 687, 707, 715
and 1051 as well as the Memorandum of Understanding of 23 February 1998, which
would be capable of addressing the outstanding disarmament issues. Some of the parameters necessary for the
implementation of such a system were outlined in relevant chapters of this
report. They will surely need further
elaboration, once the suggested approach is accepted by the Security
Council. However, even the best system
would be useless if it were to remain a blueprint on paper only. To be effective, any system has to be
deployed on the ground, which is impossible without Iraqi acceptance. How this acceptance will be obtained is the
fundamental question before the Security Council.