The Promise, and Peril, Ahead for Iraq - The parliament has learned how to use the power of the purse

The Promise, and Peril, Ahead for Iraq. By Kimberley Kagan and Frederick W Kagan
The parliament has learned how to use the power of the purse.
WSJ, Apr 10. 2009

During his visit to Iraq this week, President Barack Obama commended U.S. forces for their invaluable work there: "From getting rid of Saddam, to reducing violence, to stabilizing the country, to facilitating elections -- you have given Iraq the opportunity to stand on its own as a democratic country. That is an extraordinary achievement." But the president also cautioned that "now is not the time to lose focus" for the next 18 months will be a "critical period."

He's absolutely right.

Iraq has undergone a quiet transformation since Mr. Obama's first visit to the country as a senator in July 2008. We can no longer speak of Iraqi politics at a standstill, or a lack of political accommodation, or an unwillingness of the Iraqi government to take responsibility. The issues facing the president in Iraq, and his military commanders, are fundamentally different from those of 2007 and 2008.

On a visit to Iraq last month, we had the opportunity to see the transformation firsthand. Iraq is now a fully sovereign country. U.S. Commander Gen. Ray Odierno has insisted on the most rigorous implementation of the U.S.-Iraqi security agreement, which gives Iraqi authorities greater responsibility than ever before. U.S. forces now detain Iraqis only after securing arrest warrants from Iraqi judges, and they are releasing or transferring to Iraqi custody all of the detainees they now hold. The U.S. maintains forces and bases only where the Iraqi government wants them. The U.S. has already turned responsibility for the security of the Green Zone over to the Iraqi government, and Iraqi Security Forces have responsibility for an ever-growing proportion of Baghdad well in advance of the agreement's June 30 deadline.

Moreover, Gen. Odierno and the U.S. Embassy have established joint committees with Iraqi military and political leaders at the highest levels both to coordinate operations and to monitor and ensure adherence to the agreement. There is a committee for each article of the agreement that reviews all questions of implementation and investigates all accusations of infringements. Both sides have agreed that the approved minutes of these committees are legally binding.

January's peaceful provincial elections have reinvigorated Iraqi democracy. Iraqis voted in large numbers and, as dissatisfied voters often do, they voted the incumbents out. This was an important step, demonstrating that Iraqis believe that their vote counts and their leaders are held accountable. Iraqi politicians have gotten the message. The losing parties are working to develop platforms to win back their voters in the upcoming national elections. The struggle to form coalitions in the provinces has forced competing parties to compromise with one another at the local level.

Mr. Obama also said that Iraqis must "decide that they want to resolve their differences through constitutional means and legal means." Iraqi leaders of many parties are already showing their determination to do precisely this. For some time, rivals (and even allies) of Prime Minister Nouri al-Maliki have been concerned about his apparent efforts to concentrate too much power in his own hands through the establishment of extra-constitutional government bodies. The Council of Representatives has used the 2009 budget to clip the prime minister's wings by eliminating all funding for these "illegal" bodies. In other words, Iraqi representatives have discovered the power of the purse. It is a remarkable advance in Iraqi politics that the parliament could act against the prime minister and his party, while nonetheless passing a law that is constructive for the state.

But the country faces three major challenges in coming months: national parliamentary elections, most likely in January 2010; major budget constraints, resulting from the low price of oil; and the threat of growing Arab-Kurd tensions in the north.

The national elections will lead to the first transfer of power in the democratic Iraqi state. This is always a critical moment in the birth of a new democracy. In Iraq it will be especially challenging because of its parliamentary system. Voters must first elect a new Council of Representatives, which must then elect a prime minister and approve a cabinet. The parties must agree not only on a leader but also about how all of the ministries will be parceled out among parties and ethno-sectarian groups. In 2006, this process took five months. U.S. forces will play a critical role in helping the Iraqis secure the elections, but they will also play an important role after the vote supporting the Iraqi Security Forces and deterring dissatisfied groups from resorting to violence.

Meanwhile, the fall in the global price of oil has presented a major problem for Iraq's balance of payments. The current Iraqi budget is based on the assumption that oil would sell for an average of $50 per barrel. Oil prices have been lower than that for most of the year, generating a significant shortfall of revenue so far and forcing the Iraqi government to slash spending and dip into its reserves.

If prices remain low, important programs that maintain Iraq's security and internal stability may be threatened. Revenue shortfalls have already halted the planned expansion of the Iraqi Security Forces and disrupted plans to acquire equipment for them. And since the Iraqi government is the principal employer in the country, any significant reduction in its spending limits its ability to create jobs, including those central to the process of reconciling former insurgents.

The budget crisis, if protracted, can also prevent the newly elected provincial governments and even the central government from providing the services that the population expects, possibly leading to general disillusionment with the political process if not to a resurgence of violence. Tensions between Iraq's Arabs and Kurds, particularly over the status of Kirkuk, are still capable of destabilizing the country rapidly and profoundly. The unexpected success of the Arab al Hadba Party in Ninewah Province shifted the focus of these tensions from Mosul back to Kirkuk. But the friction over Kirkuk's status is not simply one of rival ethnicities. It also involves fundamental constitutional questions about the relationship between the central government, provincial government, and federal regions.

There is little enthusiasm in Kirkuk itself for a violent resolution of the dispute, and the presence of an American brigade near the city has helped keep the peace by helping Kurdish and Iraqi forces to understand each other's positions and actions. But rhetoric and posturing in an election year could inflame this delicate situation, and the presence of U.S. forces there is necessary.

Mr. Obama has stated his objectives in Iraq clearly: The U.S. must "make sure that Iraq is stable, that it is not a safe haven for terrorists, that it is a good neighbor and a good ally." This is an attainable goal. Iraq has undergone a profound transformation -- it is no longer a predatory, dictatorial state or a maelstrom of sectarian violence. It no longer threatens its neighbors or stability in the region. Indeed, Iraq has become an attractive political and economic partner for states throughout the Middle East.

But Iraqis remain most interested in establishing a strategic partnership with the U.S. and the West. In the long run, this partnership will not be defined by the numbers of U.S. troops in Iraq but by the depth of our economic and political cooperation, diplomatic support, and strategic alliance. As Mr. Obama said in Baghdad, America must be "a stalwart partner" and Iraqis must "know that they have a steady partner with us."

Ms. Kagan is the president of the Institute for the Study of War and the author of "The Surge: A Military History," which will be published this month by Encounter Books. Mr. Kagan is a resident scholar at the American Enterprise Institute.