    [Public Papers of the Presidents of the United States: William J. Clinton (1997, Book I)]
    [May 8, 1997]
    [Pages 578-581]
    [From the U.S. Government Publishing Office www.gpo.gov]

    Letter to Congressional Leaders Reporting on Iraq's Compliance With
    United Nations Security Council Resolutions
    May 8, 1997

    Dear Mr. Speaker:  (Dear Mr. President:)
        Consistent with the Authorization for Use of Military Force Against
    Iraq Resolution (Public Law 102-1) and as part of my effort to keep the
    Congress fully informed, I am reporting on the status of efforts to
    obtain Iraq's compliance with the resolutions adopted by the United
    Nations Security Council (UNSC). This report covers the period from
    March 7 to the present.
        Saddam Hussein remains a threat to his people and the region and the
    United States remains determined to contain the threat of Saddam's
    regime. Speaking on behalf of the Administration on March 26, 1997, in
    her first major foreign policy address, Secretary of State Madeleine
    Albright stated that the United States looks forward to the day when
    Iraq rejoins the family of nations as a responsible and law-abiding
    member and that, until then, containment must continue. Secretary
    Albright also made clear that Saddam's departure would make a difference
    and that, should a change in Iraq's government occur, the United States
    would stand ready to enter rapidly into a dialogue with the successor
    regime.
        In terms of military operations, the United States and our coalition
    partners continue enforcement of the no-fly zones over northern Iraq
    under Operation Northern Watch, the successor mission to Operation
    Provide Comfort, and over southern Iraq through Operation Southern
    Watch. On April 22, 1997, Saddam Hussein announced that Iraqi military
    helicopters would be flown through the southern no-fly zone for the
    purpose of transporting Iraqi pilgrims from the vicinity of the Iraqi-
    Saudi border to various areas in Iraq, publicly disregarding the
    prohibition against operating Iraqi rotary and fixed wing aircraft south
    of the 33rd parallel. The next day, 10 helicopters crossed the southern
    no-fly zone and arrived at a ground staging base in western Iraq, just
    north of the Iraqi-Saudi border, to await the arrival of the pilgrims.
    Because of the possible danger to innocent Iraqi civilians, the non-
    threatening nature of these flights, and the religious sensitivity of
    the situation, the United States and our coalition partners agreed not
    to take military action to intercept the helicopters.
        On April 25-27, the same Iraqi helicopters returned the pilgrims to
    their homes in various locations throughout Iraq, transiting the
    northern and southern no-fly zones in the process. Again, the United
    States and its coalition partners decided not to act against these
    flights for humanitarian and policy reasons. We have made clear to the
    Government of Iraq and to all other relevant parties, however, that the
    United States and its partners will continue to enforce both no-fly
    zones, and that we reserve the right to respond appropriately and
    decisively to further Iraqi provocations.
        In addition to our air operations, we will continue to maintain a
    strong U.S. presence in the region in order to deter Saddam. United
    States force levels include land- and carrier-based aircraft, surface
    warships, a Marine amphibious task force, a Patriot missile battalion,
    and a mechanized battalion task force deployed in support of USCINCCENT
    operations. To enhance force protection throughout the region,
    additional military security personnel have been deployed for continuous
    rotation. USCINCCENT continues to closely monitor the security situation
    in the region to ensure adequate force protection is provided for all
    deployed forces.
        United Nations Security Council Resolution (UNSCR) 949, adopted in
    October 1994, demands that Iraq not utilize its military or any other
    forces to threaten its neighbors or U.N. operations in Iraq and that it
    not redeploy troops or enhance its military capacity in southern Iraq.
    In view of Saddam's accumulating record of unreliability, it is prudent
    to retain a significant U.S. force presence in the region in order to
    maintain the capability to respond rapidly to possible Iraqi aggression
    or threats against its neighbors.
        Since my last report, the Government of Iraq has continued to flout
    its obligations under UNSC resolutions in other ways. Under the terms of
    relevant UNSC resolutions, Iraq must grant the United Nations Special
    Commission

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    on Iraq (UNSCOM) inspectors immediate, unconditional, and unrestricted
    access to any location in Iraq they wish to examine, and access to any
    Iraqi official whom they wish to interview, so that UNSCOM may fully
    discharge its mandate to ensure that Iraq's weapons of mass destruction
    (WMD) program has been eliminated. Iraq continues, as it has for the
    past 6 years, to fail to live up either to the letter or the spirit of
    this commitment. Of particular concern is UNSCOM's report to the
    Security Council of serious incidents involving repeated Iraqi threats
    to shoot down UNSCOM aircraft, an Iraqi escort helicopter flying
    dangerously close to the Commission's aircraft to force it to change
    direction, and Iraqi personnel aboard an UNSCOM helicopter attempting to
    wrest control of the aircraft.
        On April 11, UNSCOM Chairman Rolf Ekeus reported to the Security
    Council that resolution of the remaining questions about Iraq's WMD
    programs would require a ``major political decision'' on the part of
    Iraq's leadership to ``give up, once and for all, all capabilities and
    ambition to retain or acquire the proscribed weapons.'' The UNSCOM
    continues to believe that Iraq instead maintains significant numbers of
    operational SCUD missiles, possibly with CBW warheads. In early April,
    UNSCOM also asked Iraq to withdraw its ``full, final, and complete
    declaration'' regarding its biological weapons programs because it
    contained obvious inaccuracies and fabrications, and to submit a new
    one. As long as the Iraqi leadership refuses to cooperate fully with
    U.N. weapons inspectors, UNSCOM will be impeded in its efforts to
    fulfill its mandate. We will continue to fully support the mandate and
    the efforts of UNSCOM to obtain Iraqi compliance with all relevant U.N.
    resolutions.
        Implementation of UNSCR 1051 continues. It provides for a mechanism
    to monitor Iraq's effort to reacquire proscribed weapons capabilities by
    requiring that Iraq notify a joint unit of UNSCOM and the International
    Atomic Energy Agency in advance of any imports of dual-use items.
    Similarly, countries must provide timely notification of exports to Iraq
    of dual-use items.
        Regarding northern Iraq, the United States continues to lead efforts
    to increase security and stability in the north and minimize
    opportunities for Baghdad or Tehran to threaten Iraqi citizens there.
    Acting Assistant Secretary of State for Near Eastern Affairs David Welch
    led a U.S. delegation to northern Iraq on April 3 and 4, the first visit
    to the north by a U.S. official since Saddam's attack against the region
    in September 1996, and the first visit at this level in several years.
    Welch met with leaders of the two main Iraqi Kurd groups, Massoud
    Barzani of the Kurdistan Democratic Party (KDP) and Jalal Talabani of
    the Patriotic Union of Kurdistan (PUK). Both Iraqi Kurd leaders
    reaffirmed their support for U.S. policy and their commitment to
    cooperate with us through the Ankara reconciliation process. Welch also
    met with Iraqi Assyrian and Turkoman political leaders, PMF personnel,
    and U.N. officials.
        Regarding the Ankara process to help the PUK and the KDP resolve
    their differences, we have facilitated three rounds of higher-level
    talks, along with our British and Turkish partners. Our immediate goals
    in the process are to focus on strengthening the U.S.-brokered cease-
    fire of October 23, 1996, which continues to hold, and on encouraging
    political reconciliation between the PUK and KDP.
        The United States is providing political, financial, and logistical
    support for a neutral, indigenous Peace Monitoring Force (PMF) in
    northern Iraq that has demarcated the cease-fire line and monitors the
    cease-fire. Our support is being provided in the form of commodities and
    services in accordance with a drawdown I directed on December 11, 1996,
    and in the form of funds to be used to provide other non-lethal
    assistance in accordance with a separate determination made by former
    Secretary of State Christopher on November 10, 1996. The PMF began full
    deployment in mid-April, and has already succeeded in resolving several
    troublesome incidents in violation of the cease-fire.
        The PMF has also helped the groups move forward on several other
    confidence-building measures, including a mutual release on April 14 of
    approximately 70 detainees from each Kurd group. The two Iraqi Kurd
    groups also continue to work on reconciliation efforts, including an
    initial meeting on March 12 of a joint Higher Coordination Committee to
    improve cooperation on civilian services such as electricity and health.
    Local representatives of the two Kurd groups, the three countries, and
    the PMF continue to meet biweekly in Ankara and move forward on other
    confidence-building measures.
        Security conditions in northern Iraq nonetheless remain tenuous at
    best, with Iranian and

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    PKK (Kurdistan Workers Party) activity adding to the ever-present threat
    from Baghdad. All our efforts under the Ankara process, like all our
    efforts concerning Iraq, maintain support for the unity and territorial
    integrity of Iraq.
        Implementation of UNSCR 986 is proceeding. The oil-related
    provisions of UNSCR 986, which authorized Iraq to sell up to $2 billion
    of oil during an initial 180-day period (with the possibility of UNSC
    renewal of subsequent 180-day periods) went into effect on December 10,
    1996. The first shipments of food and humanitarian goods purchased with
    Iraqi oil proceeds started to arrive in Iraq on March 20.
        UNSCR 986 requires that the proceeds of this limited oil sale, all
    of which must be deposited in a U.N. escrow account, will be used to
    purchase food, medicine, and other materials and supplies for essential
    civilian needs for all Iraqi citizens and to fund vital U.N. activities
    regarding Iraq. Critical to the success of UNSCR 986 is Iraq's
    willingness to follow through on its commitments under 986 to allow the
    United Nations to monitor the distribution of food and medical supplies
    to the Iraqi people.
        During the first 90 days since implementation, Iraq sold just over
    $1 billion worth of oil in accordance with the terms of UNSCR 986.
    Significant delays in implementing distribution of humanitarian goods--
    caused, in part, by Iraqi efforts to impose new restrictions on the
    freedom of access and movement of U.N. monitors--made it impossible for
    the U.N. Secretary General to report on the adequacy of distribution and
    monitoring procedures during the first 90 days. We will continue to
    monitor the situation closely.
        Iraq continues to stall and obfuscate rather than work in good faith
    toward accounting for the hundreds of Kuwaitis and third-country
    nationals who disappeared at the hands of Iraqi authorities during the
    occupation. It has also failed to return all of the stolen Kuwaiti
    military equipment and the priceless Kuwaiti cultural and historical
    artifacts that were looted during the occupation.
        The human rights situation throughout Iraq remains unchanged. Iraq's
    repression of its Shi'a population continues with policies that are
    destroying the Marsh Arabs' way of life in southern Iraq, as well as the
    ecology of the southern marshes. Saddam Hussein shows no signs of
    complying with UNSCR 688, which demands that Iraq cease the repression
    of its own people. On April 16, the U.N. Human Rights Commission passed
    a resolution strongly condemning the Baghdad regime's continued human
    rights abuses. That same day, the Administration announced support for
    an effort by various Iraqi opposition groups and non-governmental
    organizations to document Iraqi war crimes and other violations of
    international humanitarian law. This effort, known as INDICT, seeks
    ultimately to ensure that Saddam Hussein and other members of his regime
    are brought to justice before an international tribunal. We are in touch
    with organizers of INDICT and other parties to discuss the best means to
    move forward.
        The Multinational Interception Force (MIF) is facing an increased
    challenge from smugglers and Iran. As I have noted in previous reports,
    these smugglers use the territorial waters of Iran to avoid the MIF
    inspection in the Northern Gulf. With the help of the Iranian
    government, which profits from these activities by charging protection
    fees, these smugglers are able to export over 70,000 metric tons of gas
    oil through the Gulf each month. This represents a significant increase
    from the amount included in my last report. We are working closely with
    our allies in the Gulf and with our MIF partners to develop new
    strategies to curb these violations of the sanctions regime.
        Although MIF exchanges with the regular Iranian naval units have
    been professional and courteous, Iranian Revolutionary Guard Corps naval
    units have been much more aggressive in confronting the MIF and are
    actively involved in aiding the smugglers. The MIF is acting with good
    judgment and caution in its encounters with Iran. Our objective is to
    enforce sanctions--not to engage in unproductive encounters with Iran.
        We regularly provide detailed briefings regarding developments in
    MIF sanctions enforcement to our MIF partners and Gulf Cooperation
    Council allies. We also are working closely through our mission in New
    York with the U.N. Sanctions Committee and like-minded allies on our
    approach toward Iran and sanctions violators, generally.
        The MIF continues to process the maritime traffic involved in
    lifting oil from the Mina Al Bakr offshore terminal and the delivery of
    much-needed humanitarian supplies to Umm Qasr in Iraq. So far, those
    operations are proceeding smoothly. The smuggling trade, however,
    continues to force the MIF to devote

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    scarce resources to sanctions enforcement. This has resulted in fewer
    ships available to process the legal humanitarian shipments that bring
    food and other supplies to Iraq under UNSCR 986.
        The United Nations Compensation Commission (UNCC), established
    pursuant to UNSCR 687, continues to resolve claims against Iraq arising
    from Iraq's unlawful invasion and occupation of Kuwait. The UNCC has
    issued over 1 million awards worth approximately $5.2 billion. With the
    advent of oil sales under UNSCR 986, 30 percent of the proceeds are
    being allocated to the Compensation Fund to pay awards and finance
    operations of the UNCC. Initial payments out of the Compensation Fund
    are currently being made on awards in the order in which the UNCC has
    approved them, in installments of $2,500.00. In January 1997, the United
    States Government submitted claims totaling approximately $8.8 million
    for expenses incurred in the efforts to assess and respond to
    environmental damage in the Persian Gulf region caused by Iraq's
    unlawful invasion and occupation of Kuwait.
        To conclude, Iraq remains a serious threat to regional peace and
    stability. I remain determined to see Iraq comply fully with all of its
    obligations under U.N. Security Council resolutions. My Administration
    will continue to oppose any relaxation of sanctions until Iraq
    demonstrates its peaceful intentions through such compliance.
        I appreciate the support of the Congress for our efforts and shall
    continue to keep the Congress informed about this important issue.
            Sincerely,

                                                          William J. Clinton

    Note: Identical letters were sent to Newt Gingrich, Speaker of the House
    of Representatives, and Strom Thurmond, President pro tempore of the
    Senate.