Charting a new U.S.-Iraqi relationship

Joint Force Quarterly, July, 2009 by Thomas C. Greenwood, Kevin M. Woods, Michael P. Fischerkeller

In signing the SFA, both countries committed to establishing a long-term relationship of cooperation and friendship, based on equality in sovereignty and respect for the rights and principles reflected in the United Nations Charter and international law. Primarily diplomatic and political in nature, the SFA outlines four major principles:

* a relationship of cooperation based on mutual respect, international law, noninterference in Iraq's internal affairs, and rejection of the use of violence to settle disputes

* a stable Iraq capable of its own self-defense

* the temporary presence of U.S. forces at the request and invitation of the sovereign government of Iraq and with full respect for Iraq's sovereignty

* prohibition against the United States using Iraq as a launching or transit point for attacks on other countries and against seeking or requesting permanent bases or a permanent military presence in Iraq.

Next, the SFA outlines seven areas of cooperation between the two countries:

* political and diplomatic

* defense and security

* cultural

* economic and energy

* health and environment

* information technology and communications

* law enforcement and judicial.

The SFA provides terms of reference for each category. For example, in the area of health and environmental cooperation, the United States agreed to support Iraq's efforts to train Iraqi health and medical personnel.

To implement the SFA, both countries agreed to participate in a Higher Coordinating Committee and to form functional joint coordination committees to work in Baghdad. These bodies are intended to develop common objectives, consult regularly, supervise program implementation, and resolve disputes as necessary.

Knowing what is in the SFA is necessary to appreciate its strategic significance. Namely, the SFA commits the United States to helping Iraq build effective civil institutions over the long term in each of the seven areas. Those who worry that withdrawing U.S. troops terminates America's relationship with Iraq can take comfort from knowing that the SFA will remain in effect until one of the signatories petitions in writing to terminate it. Likewise, the SFA termination clause provides a modicum of relief to those who believe that the United States may have obligated itself to a costly and endless nationbuilding mission in Iraq. In short, a sterling attribute of the SFA is its inherent flexibility to serve future U.S. interests in Iraq and to support the goals that President Obama articulated.

The Security Agreement, which with the SFA became effective on January 1, 2009, is perhaps better known than the SFA due to media attention on the specified deadline for the withdrawal of U.S. forces. That said, the Security Agreement contains a host of other provisions that have already begun to change the character of the U.S. presence and nature of the U.S.-Iraq relationship. These changes will continue to evolve during the next 3 years. Some of the agreement's key provisions are that:

* Iraq exercises jurisdiction over members of the U.S. forces and of the civilian component who commit certain crimes.