[Congressional Record Volume 153, Number 91 (Thursday, June 7, 2007)]
[Senate]
[Pages S7389-S7390]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]
SENATE CONCURRENT RESOLUTION 37--EXPRESSING THE SENSE OF CONGRESS ON
FEDERALISM IN IRAQ
Mr. BIDEN (for himself, Mr. Brownback, Mrs. Boxer, Mr. Smith, Mr.
Nelson of Florida, and Mrs. Hutchison) submitted the following
concurrent resolution; which was referred to the Committee on Foreign
Relations:
S. Con. Res. 37
Whereas Iraq continues to experience a self-sustaining
cycle of sectarian violence;
Whereas the ongoing sectarian violence presents a threat to
regional and world peace, and the long-term security
interests of the United States are best served by an Iraq
that is stable, not a haven for terrorists, and not a threat
to its neighbors;
Whereas Iraqis must reach a comprehensive and sustainable
political settlement in order to achieve stability, and the
failure of the Iraqis to reach such a settlement is a primary
cause of increasing violence in Iraq;
Whereas the Key Judgments of the January 2007 National
Intelligence Estimate entitled ``Prospects for Iraq's
Stability: A Challenging Road Ahead'' state, ``A number of
[[Page S7390]]
identifiable developments could help to reverse the negative
trends driving Iraq's current trajectory. They include:
Broader Sunni acceptance of the current political structure
and federalism to begin to reduce one of the major sources of
Iraq's instability. . . Significant concessions by Shia and
Kurds to create space for Sunni acceptance of federalism'';
Whereas Article One of the Constitution of Iraq declares
Iraq to be a ``single, independent federal state;''
Whereas Section Five of the Constitution of Iraq declares
that the ``federal system in the Republic of Iraq is made up
of a decentralized capital, regions, and governorates, and
local administrations'' and enumerates the expansive powers
of regions and the limited powers of the central government
and establishes the mechanisms for the creation of new
federal regions;
Whereas the federal system created by the Constitution of
Iraq would give Iraqis local control over their police and
certain laws, including those related to employment,
education, religion, and marriage;
Whereas the Constitution of Iraq recognizes the
administrative role of the Kurdistan Regional Government in 3
northern Iraqi provinces, known also as the Kurdistan Region;
Whereas the Kurdistan region, recognized by the
Constitution of Iraq, is largely stable and peaceful;
Whereas the Iraqi Parliament approved a federalism law on
October 11th, 2006, which establishes procedures for the
creation of new federal regions and will go into effect 18
months after approval;
Whereas Iraqis recognize Baghdad as the capital of Iraq,
and the Constitution of Iraq stipulates that Baghdad may not
merge with any federal region;
Whereas, despite their differences, Iraq's sectarian and
ethnic groups support the unity and territorial integrity of
Iraq; and
Whereas Iraqi Prime Minister Nouri al-Maliki stated on
November 27, 2006, ``The crisis is political, and the ones
who can stop the cycle of aggravation and bloodletting of
innocents are the politicians'': Now, therefore, be it
Resolved by the Senate (the House of Representatives
concurring), That it is the sense of Congress that--
(1) the United States should actively support a political
settlement among Iraq's major factions based upon the
provisions of the Constitution of Iraq that create a federal
system of government and allow for the creation of federal
regions;
(2) the active support referenced in paragraph (1) above
should include--
(A) calling on the international community, including
countries with troops in Iraq, the permanent 5 members of the
United Nations Security Council, members of the Gulf
Cooperation Council, and Iraq's neighbors--
(i) to support an Iraqi political settlement based on
federalism;
(ii) to acknowledge the sovereignty and territorial
integrity of Iraq; and
(iii) to fulfill commitments for the urgent delivery of
significant assistance and debt relief to Iraq, especially
those made by the member states of the Gulf Cooperation
Council;
(B) further calling on Iraq's neighbors to pledge not to
intervene in or destabilize Iraq and to agree to related
verification mechanisms; and
(C) convening a conference for Iraqis to reach an agreement
on a comprehensive political settlement based on the creation
of federal regions within a united Iraq;
(3) the United States should urge the Government of Iraq to
quickly agree upon and implement a law providing for the
equitable distribution of oil revenues, which is a critical
component of a comprehensive political settlement based upon
federalism; and
(4) the steps described in paragraphs (1), (2), and (3)
above could lead to an Iraq that is stable, not a haven for
terrorists, and not a threat to its neighbors.
Mr. BIDEN. Mr. President, today, Senators Brownback, Boxer, Smith,
Bill Nelson and I are introducing a bipartisan resolution. It states
clearly what so many of us agree on, the need for a political
settlement in Iraq. But then it offers what virtually no one has put
forward: a policy to actually secure that political settlement.
We propose that the United States actively support a political
settlement among Iraqis based on the provisions of Iraq's constitution
that call for creating federal system of government, with strong
regions and a limited central government.
And we urge the administration to bring in the international
community, including the permanent members of the U.N. Security Council
and Iraq's neighbors, to support a settlement based on federalism and
to convene a conference with Iraqis to help them reach that settlement.
Each of us recognizes this reality: when a country is caught in a
cycle of self-sustaining sectarian violence as Iraq is today, there are
only four ways to end it:
First, a bloodletting that leaves one side victorious or both sides
exhausted. In the case of Iraq, that could take years . . . years we do
not have and should not accept.
Second, an open-ended foreign occupation that America cannot sustain.
Third, the return of a strongman, who is not on the horizon. Even if
he were, it would be a tragic irony to replace one dictator with
another.
Or fourth, a political agreement to form a decentralized, federal
system that separates the warring factions and gives them control over
the fabric of their daily lives, including the police, jobs, education,
marriage and religion.
It's a model that worked in Bosnia. It offers the possibility, but
not the guarantee, of a soft landing Iraq.
The Bush administration has another vision for Iraq. But the entire
premise of its policy is fundamentally and fatally flawed. It believes
Iraqis will rally behind a strong central government that keeps the
country together and protects the rights of all citizens equally.
But there is no trust within the central government, trust of the
government by the people, and no capacity by the government to deliver
services and security. And there is no evidence that we can build that
trust and capacity soon.
Simply put, Iraq cannot be run from the center, absent a dictator or
foreign occupation. If we want the country to hold together and find
stability, we have to make federalism work. If we don't, there will be
no political accommodation at the center.
Violent resistance will increase. The sectarian cycle of revenge will
spiral out of control. The result will be at best the violent break up
of Iraq into multiple states--at worst the total fragmentation of the
country.
This resolution is part of a comprehensive strategy I have proposed
to bring our troops home, to leave behind a stable Iraq and to protect
our soldiers so long as a single one of them remains in Iraq.
I believe that is the best way to end the war in Iraq responsibly.
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