After 21 Years of Mediating Dialogue: What is next for UNAMI?
- Mohamed al Hassan, Special Representative of the United Nation’s Secretary General
- Tanya Gilly-Khailany, Former Member of Parliament.
Introduction
In a reflective and timely panel held at the MERI Forum 2024, Tanya Gilly-, former Member of Parliament and a civil society advocate, engaged with Mohamed Al-Hassan, the Special Representative of the UN Secretary-General and Head of UNAMI. The conversation—held in Arabic—addressed the historical legacy, evolving challenges, and the looming closure of UNAMI’s mission in Iraq. This discussion served not only as a retrospective but also as a forward-looking examination of Iraq’s political, developmental, and humanitarian trajectories, offering insights into what a post-UNAMI future might entail.
UNAMI’s Legacy: A Mixed Record of Support and Unrealized Potential
Mohamed Al-Hassan opened with a symbolic gesture—wearing traditional Omani Arab attire—to underline UNAMI’s cultural sensitivity and regional respect. He described Iraq as a “civilizational cornerstone” and emphasized that the conclusion of UNAMI’s mission must be as impactful as its onset: “The conclusion is more important than the beginning.”, he reiterated.
He stressed that Iraqis are the ultimate custodians of their own future, and that while the United Nations Mission in Iraq has provided substantial support in election monitoring, institutional reform, and IDP resettlement, its role has always remained advisory. “UNAMI is here to help, not to govern,” he repeated.
Still, the panel acknowledged that over the past two decades, UNAMI’s footprint has not been without shortcomings. Critics argue that the mission is sometimes seen to be in alignment with elite political interests, produce opaque communication strategies, and deploy top-down programming activities, causing alienation at the grassroots level. Despite consistent international support, major institutional reforms remain elusive in Iraq.
From Humanitarianism to Development: Promises and Pitfalls
Tanya Gilly challenged the narrative of progress, highlighting corruption, weak institutions, and a lack of transparency as major barriers to development. She questioned whether Iraq’s institutions were capable of sustaining meaningful development, warning that without reform and accountability, “development will remain a slogan, not a process.”
Al-Hassan responded by clarifying that UNAMI’s mandate extends well beyond humanitarian aid. “UNAMI has political, developmental, and human rights responsibilities,” he asserted. He reiterated that Iraqis themselves must lead this process while the UN can provide expert advice: “The UN is not a custodian. Iraq is an independent country, managing its own affairs.”
Rights and Freedoms: Between Commitments and Realities
One of the panel’s most pointed exchanges emerged around civil rights. Gilly raised concerns over attempts to alter the personal status law and the overall decline in liberties, especially for women and children. “It is true that liberties in Iraq have moved forward. But we should not compare ourselves to regional mediocrity,” she said. “We must aspire to more.”
Al-Hassan countered that Iraq’s record on gender pay parity was better than many countries, including some in the West. He recognized Iraq’s international obligations and asserted that the UN’s role was limited to offering technical advice and reminders—not dictating domestic policy. Nonetheless, he emphasized: “We trust that Iraq will uphold its international obligations.” The panel was unanimous on the need to preserve the liberties that have been achieved in Iraq so far. The question is “are we going to slip back on these matters or will we be able to safeguard them?” retorted Gilly.
Still, the looming fear remains: that UNAMI’s exit will further reduce the political space for civil liberties advocacy. Many activists have long viewed the mission as a shield against growing authoritarian tendencies. Al-Hassan touted Iraq’ strength and ability to generate similar models to the UNAMI should the country sees the need for it.
The Sinjar Agreement: Between Symbolism and Implementation
Turning to the Yazidi-majority district of Sinjar, the panel examined the stagnation of the Sinjar Agreement and the barriers that block its successful implementation. Gilly relayed criticisms from Yazidi survivors and NGOs that the agreement lacked inclusivity and implementation. “Survivors did not feel involved,” she noted, underscoring a failure in participatory processes.
Al-Hassan acknowledged that success depends on inclusive and consistent dialogue, emphasizing that the UN supports a “gradual, stable approach.” This way, he argued, solutions will sustain. However, he conceded that UNAMI’s limited time left puts pressure on stakeholders to solidify progress now: “The conclusion phase for UNAMI is not an exit—it’s a new beginning.”
Strategic Withdrawal: From Mission to Mechanism
A major theme of the discussion was the fear of institutional vacuum following UNAMI’s departure. Civil society groups, especially those in marginalized areas, worry that the UN’s gradual exit will dismantle their primary international support channel.
Al-Hassan sought to reassure: “UNAMI may conclude, but the UN is not leaving Iraq. Nor Iraq will leave the UN” He explained that future support would come through the Resident Coordinator system and specialized UN agencies. Discussions are underway with the Iraqi government to define this post-UNAMI architecture. Al-Hassan shifted focus to other areas that Iraq can address through the UN such as its borders and relations with Kuwait.
Nevertheless, concerns persist about the lack of a clear and participatory transition strategy. Key questions remain unanswered: Who will lead civil society engagement? How will priorities be determined? Will marginalized voices be heard?
Baghdad and Erbil: Bridging Divergence with Dialogue
The discussion also addressed regional dynamics between Baghdad and the Kurdistan Region. Gilly flagged concerns that the UN sometimes treated Iraq as monolithic entitiy, failing to account for Kurdistan’s unique governance structures and priorities.
Al-Hassan responded that diversity is Iraq’s strength. “Iraq is a mosaic—Kurds, Christians, Jews, Arabs, Sunnis, Shi’as. The question is how to turn that diversity into strength,” he stated. Despite perceived differences, Iraq’s strength and uniqueness is seen through its diverse tapestry. Sustained efforts should be made to keep its diverse fabric. Both Erbil and Baghdad realize their common future together and that both governments actively collaborate with each other, the head of UNAMI noted. It is true that there are challenges in the relationship, but through dialogue differences can be reconciled. “A stable and prosperous KRI will not only be in the interest of Iraq, but also the entire region.” Al-Hassan, commented.
Final Priorities and the Road Ahead
As the panel concluded, El Hassan was asked about UNAMI’s final objectives before its mandate ends in December 2025. He emphasized a focus on electoral support, transitional justice, Iraq-Kuwait reconciliation, and human rights monitoring. “The next phase must be about legacy,” he stressed. He also noted the continued existence of unresolved files, such as missing persons and border disputes with Kuwait, which will require sustained international facilitation even beyond UNAMI’s formal closure.
The challenge for the UN moving forward is to ensure that its departure does not equate to disengagement. As Iraq navigates an uncertain future, the strength of its institutions, the resilience of its democracy, and the vibrancy of its civil society will determine whether this next chapter brings closure—or continuity.
MERI Forum 2024
After 21 Years of Mediating Dialogue: What is next for UNAMI?