kurdish nationalism in northern iraq_ravenel godbold
TRANSCRIPT
TheDevelopmentofKurdishNationalisminModernIraq:IsanIndependentKurdistanonthe
Horizon?
By:RavenelGodbold
Introduction
TheestablishmentofanautonomousKurdistaninnorthernIraqin1991
appearedtobeastepintherightdirectionfortheIraqiKurds.Withinthespanofa
century,theIraqiKurdshaveevolvedfromanOttomanminoritygroupwithout
nationalistgoalstocontrollinganautonomousregionwithsignificantpolitical
powerintheIraqistate.Sincethe2003overthrowofSaddamHussein,theIraqi
KurdshavemadeeffortstoremainapartoftheIraqistateaslongastheirdemands
aremet,butthequestionofanindependentIraqiKurdistanhasnotbeenremoved
fromthetable.Thefollowingpageswilladdressthefeasibilityofanindependent
KurdishstatebeginningwiththedevelopmentofKurdishnationalistsentimentand
participationintheIraqipoliticalarena.ThesectionsthatfollowexploretheIraqi
Kurdsandwhetherthelimitedautonomytheyenjoyisindicativeofafuture,
successfulsecessionfromtheIraqistateorisbetterusedasaneffectivebargaining
chip.
TheKurdsandKurdistan
Kurdayeti,orKurd,wasfirstusedinthe12thcenturytodescribenomadic
groupsresidinginthemountainousregionsofIraqandIranbutovertimehas
2
evolvedintoatermforidentifyingthefourthlargestethnicgrouporiginatingin
present-dayIraq,Iran,Syria,andTurkey.1TheIraqiKurdscomprise25%ofIraq’s
population,anestimated4.7millionpeople,makingthemthelargestminority
percentageofthehoststates.2Todaythereareanestimated20-30millionKurds,
withthemostsizeablecommunitiesintheUnitedStates,Germany,Russia,Israel,
Georgia,andCanada.3
TheKurdsutilizeseveralmythsoforigin,4butarelikelyaresultofIndo-
EuropeantribemigrationintotheZagrosregion.5Similartootherethnicgroups,the
KurdsarenotahomogeneouspeopleandwithintheKurdishcommunitythereare
linguistic,religious,andtribaldifferences.6Thereareanumberofdifferentdialects
withintheKurdishlanguage,influencedbytheofficiallanguagesofthecountriesin
whichtheyreside;themostwidelyspokendialectisKurmanjiandisusedbyKurds
inTurkey,Syria,northernIran,andtheportionofIraqnorthoftheGreaterZab
River,whileSorani/KurdiisspokensouthoftheGreaterZabinIraqandinthe
KordestanprovinceofIran.7ReligiouslytheKurdsarelessdiverse;themajorityof
KurdsareSunniMuslimsfollowingtheShafi’ischoolofjurisprudencealthough
thereareminoritiesfollowingSufism,Judaism,Christianity,Yarsanism,Yazidism,
1CraigDouglasAlbert,“AHistoryofViolence:EthnicGroupIdentityandtheIraqiKurds,”IranandtheCaucasus17(2013):223.22KeremYildiz,TheFutureofKurdistan:theIraqiDilemma,(London:PlutoPress,2012)7.3JeremyJimenezandPeterKabachnik,“TheOtherIraq:ExploringIraqiKurdistan,”FOCUSonGeography55.2(Summer2012):31.4ThemajorityoftheKurds,accordingtoCraigDouglasAlbert,believetheyaredescendantsoftheMedianEmpirein6thcenturyPersia.Albert,224.5Yildiz,TheFutureofKurdistan:theIraqiDilemma,5.6Albert,223.7Yildiz,TheFutureofKurdistan:theIraqiDilemma,5.
3
andShi’ism.8Finally,therearetribaldifferencesbetweentheKurds.These
differenceswillbediscussedwhensummarizingthedevelopmentofKurdish
politicalparties.
ThemajorityofKurdsresideinIraq,Iran,Syria,andTurkey,aregion
referredtoasKurdistanbeginninginthe16thcentury.9Theregionwasruledbythe
OttomanandPersianempiresuntiltheearly20thcenturywhentheMiddleEastwas
divviedupintothepresentdaystates.Theareareceivesanadequateamountof
rainfall,creatingasuitableenvironmentforagriculture(primarilytobacco,cotton,
grains,fruits,andvegetables)andlivestockfarming,while10IraqiKurdistanisalso
richinoil,naturalgas,minerals(chrome,copper,iron,coal,lignite),andwater.11All
fourcountrieshavehadconflictswiththeKurdishpopulationsresidingwithintheir
borders,butthoseinIraqaretheonlyoneswhohavemanagedtoachieveautonomy
andhavetheirbordersrecognizedbybothdomesticandforeignentities.
DevelopingaNationalIdentity
TheOttomanEmpireandBritishControl
KurdslivingintheOttomanvilayetsofMosul,Baghdad,andBasradidnot
developastrongsenseofnationalidentityuntilthepost-WorldWarIperiod.While,
theOttomanPeriodwasnotabsentofKurdishdiscontent,12theOttomanshad
successfullyreducedthepowersofKurdishAmirswithoutfacingmuchopposition,
8Ibid,6andAlbert,227.9SeeAppendixA.10TheFutureofKurdistan:theIraqiDilemma,7.11Ibid.TheeffectsofthesenaturalresourcesonthepoliticalsituationinIraqiKurdistanwillbediscussedmoreindepthinthefollowingpages.12SeeDavidMcDowall’sAModernHistoryoftheKurdsforanindepthhistoryofKurdishshaykhs,uprisings,andthreatstotheOttomanEmpire.
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largelyduetotheuseofreligionasthemarkerofidentity;asMuslims,themajority
ofKurdswasstillanintegralpartoftheOttomansystemanddidnotfeeltheir
positionwasthreatenedbythepowerreductions.13WiththeoutbreakofWorldWar
I,theKurdsralliedaroundtheOttomanEmpirewhenitdeclaredwaronBritain,
France,andRussiain1914.14Unfortunately,fortheOttomans,theKurdishsupport
wasshortlivedandnationalistideasbegantodevelop;EdmundGhareebattributes
thebeginningsofKurdishnationalismtoanumberoffactorsincluding:poorsocial
andeconomicconditionsinKurdishareas,closertiesbetweenKurdishtribes,the
lackofinterestoftheYoungTurkmovementinminorities,andtheriseofstrong
nationalistmovementsinotherOttomansubjects(Greeks,Arabs,Armenians,
Bulgarians,andAlbanians).15
FollowingthecollapseoftheOttomanEmpire,itappearedaKurdishstate
wasonthehorizon.SignedonAugust10,1920bytheOttomanGovernmentand
AlliedPowers,theTreatyofSevresessentiallyredrewthemapoftheMiddleEast,
createdthenewstatesofTurkeyandIraq,anddissolvedtheOttomanEmpire.The
questionof“Kurdistan”wasalsoaddressed,16andthediscussioncontinuedatthe
1921CairoConferencewhendelegatesagreedaKurdishstateshouldactasabuffer
betweentheotherMiddleEasternstates.Duetounhappinesswithlanddivisions,
13PeterSluglett,“CommonSense,oraStepPregnantwithEnormousConsequences:SomeThoughtsonthePossibleSecessionofIraqiKurdistan,”SecessionasanInternationalPhenomenon:FromAmerica’sCivilWartoContemporarySeparatistMovements,Ed.DonHarrisonDoyle,(Athens:UniversityofGeorgia,2010)322.14Sluglett,323.15EdmundGhareeb,“TheKurdishIssue,”Iraq:ItsHistory,People,andPolitics,Ed.ShamiConstantineInati,(Amherst,NY:Humanity,2003)167.16MahirA.Aziz,TheKurdsofIraq:EthnonationalismandNationalIdentityinIraqKurdistan,(London:I.B.Tauris,2011)61.
5
theTreatyofSevreswasrejectedJuly24,1923andreplacedwiththeTreatyof
Lausanne,establishingthemodernTurkishstateandrejectedtheideaof
“Kurdistan”;theregionwasdividedbetweenIraq(Mosulwasincorporatedintothe
state),Turkey,Syria,andIranonJune5,1926,creatingthebordersandpopulations
ofthemodernMiddleEast.
Duringthissameperiod,Britishpolicyintheregionundertheircontrol
appearedsympathetictotheKurdishcauseandinsomewaysencouragedKurdish
nationalism,toyingwiththeestablishmentofaKurdishprovince.17The1921
provisionalconstitutiondeclaredIraqtobecomprisedoftwonationalgroups,the
ArabsandtheKurds.After1925,theKurdsweregivenmorelenienciesandallowed
toteachKurdishinschools,publishKurdishlanguagebooks,andrepresentthe
Kurdishmajorityregioninthegovernment.18ThesmallsuccessesfortheKurds
wereshortlived,andthe1930Anglo-IraqTreatyofAlliancedidnothingtopromote
Kurdishautonomyorbasicrights.19Twoyearslater,Iraqofficiallygained
independencefromtheBritish,althoughBritishinfluencewouldremainuntilthe
1958Revolution,andwasgrantedmembershipintotheLeagueofNations
conditionalontheprotectionofcivilandpoliticalrightsoftheKurdishpopulation.20
The1930sbegantheprocessofmajortransformationsintheformofrevolts,
developmentofArabnationalism,andpoliticalpartyformationintheIraqipolitical
sphere.ThemostnotablepartyestablishedinthisdecadewastheIraqiCommunist
Party(ICP)in1934,whichinitiallyattractedthesupportofurbanKurdsduetotheir17Aziz,60.18Aziz,68.19Yildiz,TheFutureofKurdistan:theIraqiDilemma,11.20Ibid.
6
supportforminoritygroups,butthedevelopmentofKurdishpartiesbeginningin
the1940sledtoashiftinpoliticalalliances.21In1935MustafaBarzanibecamea
prominentfigureinKurdishnationalism,leadingarevoltofKurdishchiefsagainst
thegovernment’sfailuretoupholdthetermsofthedeclarationofindependence,
mostnotablytheofficialuseoftheKurdishlanguage,representationofKurdsinthe
NationalAssembly,andafairdivisionofresources.22Eventhoughtherevolt
ultimatelyfailed,MullaMustafa’sparticipationputhimandtheBarzanitribeonthe
politicalmap.
CentralIraqalsounderwentanumberofchangesduringthe1930s;Britain
refusedtorelinquishcontroloftheareaandafterthedeathsofKingFaysalIand
Ghazi,andtheweakruleofKingFaysalII,thefutureofIraqwasagaininquestion.23
Severalsucceedingcabinetswereunabletoeffectivelygovernduetofactionalism,
sectarianism,andgeneralincompetenceofpoliticalleadersinoffice.24
The1930salsosawtwodistinctformsofnationalismbegintodevelop
amongArabIraqis:qawmiyyah,anethnic,racialnationalism,andwataniyyah,a
territorialnationalism.Qawmiyyah,anethnicandracialnationalism,stemsfrom
qawm,whichhastakenontheEuropeanconnotationof“nation”althoughit
originallyreferredtobloodrelation,whilewataniyyah,aterritorialnationalism,
comesfromwatana,or“homeland”.25Iraqissubscribingtotheqawmiyyahtheory
21Aziz,66.22Yildiz,TheFutureofKurdistan:theIraqiDilemma,12.23DeniseNatali,TheKurdsandtheState:EvolvingNationalIdentityinIraq,Turkey,andIran,(Syracuse,NY:SyracuseUP,2005)35.24DavidMcDowall,AModernHistoryoftheKurds,(London:I.B.Tauris,1996)287.25JohanFranzen,“TheProblemofIraqiNationalism,”NationalIdentities13.3(2011):220.
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tendedtosupportPan-Arabism,astrainofnationalismthatalsodevelopedduring
the1930s,whileproponentsofwataniyyasupportedIraqipatriotism.26Perhaps
unsurprisinglymanyoftheBa’athists(IraqiRenaissanceSocialistParty)werealso
qawmiyyanationalists,supportinganArabIraqistateandclaimingsuchastatewas
theonlywaytoachieveunityovertheminorities.27Theimportanceofqawmiyyah
andtheBa’athpartywillcomeintoplayfollowingthe1968Ba’athRevolution.
TheBritish,Qasim,andtheFirstBa’athCoup
WithmuchofthewesternworldfocusedontheoutbreakofWorldWarII,
IraqfacedanewleaderastheresultofyetanothercouponApril3,1941,RashidAli
elGailani.28AlireachedouttotheAxispowersforsupport,promptingBritish
militaryinterventioninBasra,Baghdad,andHabbaniyawheretheymanagedto
defeatAli’smilitaryandsecuretheirholdonoilinterests.29Despitesuccessover
Ali’smilitarycoup,theBritishwerethenforcedtocontendwithaKurdishrevolt
from1943-1945undertheleadershipofMullaMustafaBarzani.Britishpressureon
BaghdadsecuredapardonforMullaMustafainNovember1943andattemptsto
negotiatebetweenMullaMustafaandBaghdadbegan.Negotiationsappearedto
succeed,butArabnationalistsrefusedtoimplementthechangesandMullaMustafa
begantestingthelimitswithnewfoundconfidencefromsupportinthenorth,
resultinginastalemate.30
26Natali,35.27Ibid.28KellyBell,“WorldWarII:AirWaroverIraq,”AviationHistoryMagazine,May2004,Available:http://www.historynet.com/world-war-ii-air-war-over-iraq.htm.29Ibid.30McDowall,291.
8
Thestalematecontinuedthroughthesummerof1944whenMullaMustafa
againrejectedamnestyfromBaghdadandIraqitroopsmarchedonMullaMustafa,
forcinghimonthedefensiveandcausinghimtofleetoMahabadprovinceinIran.31
WhileinMahabad,MullaMustafaparticipatedinthenationalistmovementand
defendedthefirstKurdishRepublicbeforeretreatingtotheSovietUnionin1947,
whereheresidedfor11yearsbeforereturningtoIraqonOctober6,1958.32
In1946,fourpoliticalgroupsunitedtoestablishoftheKurdishDemocratic
Party(KDP):Heva,Shoresh,Rizgari(Liberation),andtheIraqibranchoftheIranian
KDP.33TheKDPessentiallyrepresentedtheBarzanis,aKurmanjispeakingtribe
locatedinthenorthwestregionofIraqiKurdistan,andtosomeextent,thisremains
trueinthecurrentpartycomposition.34MullaMustafawaselected
president/chairman,HamzaAbdullahwasnamedsecretary-general,andShaikh
LatifandShaikhZiadAghazwerechosenasvicepresidents.35DuetoMulla
Mustafa’sexilesinIranandtheSovietUnion,theKDPplayedaminorroleinIraqi
politics.IbrahimAhmad,aKurdishnationalist,replacedAbdullahassecretary
generalin1953,hopingtocombineKurdishnationalismwithleftistnationalist
movements.36Abdullahregainedcontrolbrieflyin1959,buthisclosetieswiththe
ICPconcernedMullaMustafaandAhmadtookbackthepositionlaterthatyear.
ThesecompetinginterestswithintheKDPledtofactionalismandlaterthecreation
31McDowall,293.32Aziz,68.33MichaelM.Gunter,TheKurdsofIraq:TragedyandHope,(NewYork:St.Martin's,1992)22.34Sluglett,332.35Ibid.36Gunter,23.
9
ofnewparties,butforthenextdecadetheKDPremainedtheprimaryKurdishparty
inIraq.
Duringthisperiod,Britishpoliciesremainedineffect,anditwasnotuntilthe
July1958RevolutionthatBritishinfluencewasexpelledandanewpoliticalclass
emerged.AbdulKarimQasim,leaderoftheFreeOfficer’sMovement,cametopower
asnationalistmilitaryofficersandanewclassofintelligentsiawasthrustintothe
centerofBaghdadipolitics.37Qasimsupportedthewataniyyahstrandof
nationalism,pushingforaunifiedIraqstatewithArab-Kurdishsolidarity.38TheJuly
27,1958provisionalconstitutioncontainedcontradictoryarticles;ArticleThree
namedtheKurdsasanintegralpartoftheIraqistatewithguaranteedrightswhile
ArticleTwodeclaredIraqtobepartofanArabnation.39
InitiallyKurdswereallowedtobroadcast,publish,andeducateinKurdish,
theKurdishethnicidentitywasrecognized,40andaKurdwasappointedtothe
“sovereigntycouncil”.41QasimalsoattemptedtoallywithIraqicommunists,andin
1959theKurdishandcommunistalliessuppressedanti-QasimrevoltsinMosuland
Kirkuk.Unsurprisingly,Qasim’sallianceswithboththeKurdsandthecommunists
wereshort-lived;by1960,anyconcessionsgrantedduringthefirsttwoyearsofthe
governmentwerewithdrawnoutoffearthattheKurdswoulddemand
independence.KDPmemberssentdemandsregardingcultural,national,and
economicrecognitiontoBaghdadandweremetwithattacksbyQasimthrough
37Frazen,226.38Aziz,69.39Aziz,68.40Aziz,69.41Yildiz,TheFutureofKurdistan:theIraqiDilemma,13.
10
enemiesoftheBarzanitribe.42TheKurdsansweredwitharevolt(March1961-
1963),withthegoalofobtainingautonomyandadvancingthesocialagenda.43
Duringthisperiod,therewerealsodebateswithintheKDP,mostnotablyJalal
Talabaniandhisfollowers,foreshadowingtheinevitablesplitwithintheKDPinthe
nextdecade.
OnFebruary8,1963,theBa’athPartysucceededinitsfirstrevolution,
overthrowingQasimandestablishinganewgovernment.Theirsuccesswasbrief,as
AbdelSalamArifoverthrewthepartyninemonthslaterandgovernedIraquntil
1966.UnderArif,theKurdswereunabletomakeprogressregardingtheirdemands
forautonomy;however,followingArif’sdeathin1966,hisbrother,Al-Bazzazzdrew
uptheJune1966Accord,alsoreferredtoastheAl-BazzazzDeclaration.The
declarationoutlined15pointsregardingtheKurdishdemandforautonomyand
nationalrecognitionfortheirrights,butNasserites,Ba’athists,andCommunists
crushedwhatwouldhavebeenapositivestepfortheKurds.44Twoyearslater,the
Ba’athPartyregainedpowerinthe1968bloodlesscoupandpowerdynamics
changedyetagain.
TheBa’athistsandtheKurds:InternalDiscord,Arabization,andAnfal
ThesecondBa’athcouptookplacefromJuly17-30,1968andbytheendof
thetwo-weekperiodGeneralAhmadHasanal-Bakr,arelativeofSaddamHussein’s
fromTikrit,tookpower.Shortlyafter,aKurdishrevolteruptedandtheBa’athparty,
havingfailedtocrushtherevolt,begannegotiationswiththeKurds.Theresultwas
42Aziz,70.43McDowall,313.44Aziz,71.
11
theMarch11,1970Agreement,offeredbytheRevolutionaryCommandCouncil
(RCC),whichdetailed13articlesgrantingKurdsasignificantamountofautonomy
whilekeepingtheregionpartoftheIraqistate.45Thearticlesincludedfull
recognitionoftheKurdishnationality,centralgovernmentpositionsforKurdish
politicians,autonomywithinfouryears,integrationofthepeshmergaintotheIraqi
army,andacensusandplebiscitetodeterminethestatusofKirkuk.Thissuccess,
likepreviousones,wassuperficialandfailedtoliveuptotheexpectations
promised;the1970agreementexperiencedpartialimplementationandby1974,
thenegotiationsculminatedinadeadlock.
The1970sprovedtobeadifficultdecadefortheKurds.The1974Autonomy
Law,theAlgiersAgreement,changesingovernmentpolicy,andinternalstrifedealt
Kurdishnationalismhardblows.TheAutonomyLaw,offeredtoBarzanibySaddam
Hussein,grantedtheKurdssignificantauthorityoverthesocialandeconomic
aspectsofwhatwouldbeaself-governingregion.Therewerecaveats,andBarzani
refusedtosignduetothelegallimitationsforautonomyandsignificantdecreasein
landarea.46Ayearlater,theAlgiersAgreementwassignedonMarch6,1975
betweenIraqandIran,resultinginthewithdrawalofIraniansupportfortheKurds.
OnMarch23,1975,BarzaniannounceddefeatandfledtoIranwithanestimated
100,000Kurds,leavingtheKDPinhisson’shands.
FollowingBarzani’sself-imposedexileinIran,JalalTalabaniandother
disgruntledKDPmembersbrokeawaytoformthePatrioticUnionofKurdistan
(PUK)party.ThemajorityofPUKmembersheraldedfromtheSurani-speaking45Aziz,72.46Yildiz,TheFutureofKurdistan:theIraqiDilemma,19-20.
12
northeastregionofIraqiKurdistan,preferredamoreprogressivepolitical
approach,andhadopposedtheclosetiesbetweentheKDPandtheUnitedStates
duringthe1963Ba’athreign.47UnliketheKDP,thePUKwaslesstribalorientedbut
theTalabanitribe,oneofthelargestinIraqiKurdistan,wasimportantinensuring
loyaltytotheparty.48Splinterparties(KDP-PL,PASOK,KSPI,andKPDP)49also
formedduringthelate1970s,andinter-Kurdishskirmishesbecamecommonplace.
Inadditiontoexternalenemies,theKurdswerefightingamongstthemselves.
Duringthissameperiod,theBa’athpartyintroducedanewideologyto
replaceQasim’snationalistideology.NationalisminIraqshiftedfromwataniyyahto
qawmiyyah;Ba’athistsaimedtomakeIraqthecenteroftheArabworldand
Saddam’svisionoftheidealIraqiidentitywasbasedonSunniMuslim
characteristics.InordertoforcetheassimilationofIraqi’smultipleminoritygroups,
SaddamimplementedtheprocessofArabization.Inordertoalterthedemography,
tensofthousandsofIraqiArabswereresettledinKurdishareaswiththeguarantee
ofhousingandjobs.50Kurdishvillagesweredestroyedorrenamed,theKurdish
languagewasforbiddeninschools,andnationalandculturalKurdishactivitieswere
banned.51
TheArabizationprocesscontinuedaftertheoutbreakoftheIran-IraqWar
(1980-1988),andSaddamusedthisexternalthreattoinstigateadditionalviolence47Sluglett,333.48AnilHiraandKawaJabary,“TheKurdishMirage:ASuccessStoryinDoubt,”MiddleEastPolicy20.2(2013):100.49Aziz,76.50NouriTalabani,“EthnicCleansinginIraqiKurdistan,”KurdishIdentity:HumanRightsandPoliticalStatus.Ed.CharlesG.MacDonaldandCaroleO’Leary.(Gainesville:UniversityPressofFlorida,2007)145.51Aziz,75.
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againsttheKurds.SomegroupsannouncedtheirsupportforIran52whileothers
sidedwithSaddaminexchangeforfinancialcompensation.53Itwasnotuntil1988
thatthePUKandKDPcametogether,alongwiththeKPDP,KSP,PASOK,ICP,KTP,
andADM,toformtheIraqiKurdistanFrontwiththegoaloftherightofself-
determinationanddemocracyforIraq.54Oneofthemaincatalystswasmostlikely
theAnfalcampaign,spearheadedbyAliHassanal-Majid,alsoknownas“Chemical
Ali”andthecousinofSaddam.AstheheadoftheIraqiStateSecurityServicesand
thechiefoftheBa’athParty’sBureauforNorthernAffairs,Alilaunchedmilitary
offensesagainstcivilianandmilitarytargetswithchemicalweapons;55theattacks
occurredinthreewaves,beginningwithBergalouandSergalou,followedby
Sewsenan,andconcludingwithvillagesontheGermianplane.56TheAnfal
campaignsdestroyedanestimated3,000villages,displaced1.5millionpeople,and
killed180,000.57Thosewhosurvivedtheattacksfaceddetainmentincamps.
Medicalstudiesshowedthephysiologicaleffectsofchemicalweaponslastedfor
yearsaftertheinitialattack.58ThewarendedafternearlyadecadeinAugust1988,
andamnestywasgrantedonSeptember6,1988.
52Albert,218.53Albert,231.54Aziz,79.55ResearchconductedbyDr.ChristineGodsdenofLiverpoolontheHalabjaattackrevealedtheuseofchemicalsincludedmustardgas,Saringas,Tabun,andVX(nerveagents).SeeYildiz,TheFutureofKurdistan:theIraqiDilemma,27.56Yildiz,TheFutureofKurdistan:theIraqiDilemma,22-25.TheattackatHalabjawasnotpartoftheAnfalcampaignbutwasthemostdevastatingintermsofdamages57Ibid.58Effectsincludedrespiratoryproblems,eyedisorders,skindiseases,cancers,congenitalabnormalities,infertility,miscarriages,stillbirths,andneonatal/infantdeath.SeeYildiz,TheFutureofKurdistan:theIraqiDilemma,28.
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Intifada,InternationalIntervention,andSemi-AutonomousRule:1991-200359
March1991Rebellion
The1990smarkedaturningpointfortheKurdsintheirstruggleagainstthe
centralIraqigovernment,butinternalconflictcontinuedtodividetheKurdish
parties.Iraq’sinvasionofKuwaitonAugust2,1990setthingsinmotionandon
March5,1991aspontaneousuprising,raparininKurdish,beganinIraqiKurdistan.
BeginninginRanya,theuprisingspreadtoErbil,Sulaimaniya,Dohuk,andZakho60
followingtheceasefiresignedbetweenIraqandNATOtroops.61Despiteclaimsof
U.S.andalliedincitement,theU.S.didnotsupporttherebellionforfearofaShi’ite
revolutioninthesouth,vestedinterestedinSaddam’sregime,andinorderto
preserveIraq’sterritorialintegrity.62Thepeshmergawasinundatedwithtroops63
andconfidence,attackingandoverthrowingmilitarybases,securityheadquarters,
andBa’athpartyoffices.64Saddam’sforceseasilysuppressedtherebellion,leading
totheexodusof2millionKurdstoTurkey(~500,000)andIran(~1.5million),the
detainmentof~100,000,andthedeathof~20,000.65TheKurdswhofledtoIran
wereaccepted,butthoseontheTurkishborderwerelessfortunateandmanydied
whilewaitingforrefuge.InKirkukanestimated30,000Kurdswerearrestedand59SeeAppendixB.60Aziz,82.61Yildiz,TheFutureofKurdistan:theIraqiDilemma,29.62Yildiz,TheFutureofKurdistan:theIraqiDilemma,31.63Anestimated50,000+troopsarethoughttohavedesertedtheIraqiarmyinthenorth.SeeYildiz,TheFutureofKurdistan:theIraqiDilemma,30.64Aziz,82.65Yildiz,TheFutureofKurdistan:theIraqiDilemma,31.
15
detainedwithoutfoodorwaterfordays,hundredsofhomeswererazed,andthose
whosurvivedwereforbiddenfromreturning.66
TheUnitedNationswastedlittletimeincondemningSaddam’sresponseto
theuprising;inameetingheldonApril5,1991,theUNSecurityCouncilissued
Resolution688despiteaformalprotestfromIraq,abstentionsfromChinaand
India,andvotesagainsttheresolutionbyCuba,Yemen,andZimbabwe.67The
controversialresolutioncondemnedIraq’srepressivetacticsanddemandedIraq
endtherepressionimmediately,aswellasallowaccesstohumanitarianaid
organizations.CoupledwiththeeconomicembargoplacedonIraqioilshortlyafter
invadingKuwait,Baghdadwasdispleasedwithinternationalintervention.OnApril
13,1991theGulfWarallieslaunchedOperationProvideComforttoprovide
humanitarianrelieffortheIraqiKurdishregion;theoperationeventuallysupplied
15,500tonsofsuppliesby20,000personnelfrom13countries.68
OperationSafeHavencommencedshortlyafteronApril16,1991inorderto
establishrefugeecampsforKurdsbetweentheTurkishandIranianborders;camps
beganatZakhoandeventuallyspreadeasttoAmadiyyaandsouthtoDohuk.69The
ideaof“Kurdishenclaves”,later“safehavens”,wasinitiallyproposedbyTurkish
PresidentOzalandadvocatedforbyBritishPrimeMinisterJohnMajor;theUnited
StatesandUNreversedtheirearlierpositionsandsupportedthesafehaven
system.70Alliedforcesestablisheda36-mileby36-mileno-flyzoneabovethe36th
66Talabani,146.67Yildiz,TheFutureofKurdistan:theIraqiDilemma,33.68Yildiz,TheFutureofKurdistan:theIraqiDilemma,34.69Yildiz,TheFutureofKurdistan:theIraqiDilemma,35.70Gunter,56.
16
parallel,includingErbil,Mosul,Zakho,andDohuk,andKurdishrefugeesbeganto
returntotheirhomeswithinthezone.ByMay23,1991theUNannouncedan
agreementtostationamaximumof500UNguardsinfourprovinces,andonJune7,
1991theUNHCRtookoverthehumanitarianreliefeffortsinitiallyheadedbythe
UnitedStates.71
FoundingandFighting:TheEmergenceoftheKRG
Whileinternationalbodiesorganizedpreliminaryhumanitarianreliefefforts,
KurdishleadersbegannegotiationswiththeIraqigovernmentinApril1991;the
negotiationswentthroughtworounds,withonlyfourofthesevenIKFpartiesin
attendance(Talabaniattendingthefirstround(April18-24)andMassoudBarzani
attendingthesecond(May6-18)).72InJuneBarzanireturnedtotheKurdishregion
withclaimsofanautonomydealbasedontheconstitutionandtheMarch1970
Agreement,butinreturn,SaddamrequiredtheKurdscommittoanappendixtitled
“KurdistanFrontsCommitmentsTowardtheHomeland”,whichdetailedthe
disbandmentofthepeshmerga,surrenderofradiostations,immediateendoftalks
withinternationalbodies,commitmenttotheIraqistate,supportoftheBa’athparty
indealingwithnationalisticgroups,andtheimplementationofprogramsdrawnup
bythecentralgovernment.73TheIKFrespondedwithacounterproposalthatwas
notacceptedandinfall1991,thenegotiationsdisintegratedandclashesbrokeout
betweenKurdishandIraqiforces.
71Yildiz,TheFutureofKurdistan:theIraqiDilemma,36.72Gunter,59.73Gunter,71.
17
BylateOctober1991,Saddamwithdrewalltroops,cutthesalariesof
Kurdishemployees,andimposedablockadeontheKurdishregion.TheKurdish
FrontrecognizedSaddam’sattempttoforcetheKurdsintosubmissionand
respondedwiththeannouncementofparliamentaryelectionstoreplacethe
LegislativeAssembly,aswellasgivetheFrontsomesemblanceoforder,tobeheld
onApril3,1992.74Theelectionswereheldamonthlate,May19,1992,inthethree
provincestheKurdscontrolledonthebasisofproportionalrepresentationwith7%
ofthevoterequiredtoqualifyforaseat.75Smallerpartiesparticipated,including
Islamic,AssyrianTurkmen,andleftistgroups,andsomecombinedinattemptsto
gainmorevotes;however,theresultsshowedtheKDPandPUKhadthemostloyal
followingastheonlytwopartiestomeetthe7%requirement,andBarzaniand
Talabaniagreedtoleadthefronttogether,splittingtheseats50-50betweenthetwo
groups.76
TheNationalAssemblymetforthefirsttimeonJune4,1991andtheKurdish
RegionalGovernment(KRG)wasestablishedamonthlater;77theKRGdeclared
KurdistanafederalIraqistateonOctober4,1992despiteprotestsfromIraq,Iran,
Syria,andTurkey.78RatherthancompletelyleavingtheIraqistate,theKurdsmade
itcleartheywereopentoreturning“tothefold,butonlyifthecentralgovernment
mademajorchangesintheformerIraqiconstitution.”79
74McDowall,379.75McDowall,380.76Ghareeb,179.77McDowall,382.78Aziz,85.79MohammedM.A.Ahmed,IraqiKurdsandNation-Building,(NewYork:PalgraveMacmillan,2012)9.
18
A“unified”KRGwasunabletowithstandthepressuresoftheindividual
parties,andin1994,acivilwareruptedbetweentheKDPandthePUK,duetoalack
oftrust,lackoftransparency,anddisputesoverbordertariffs.80Alanddisputenear
QalaDizabetweenaKDPclaimantandPUKsupportingfarmersinMay1994
sparkedtensionsandbattleswerefoughtbetweenthetwopartiesintermittently
untilAugust1994,andagaininDecember1994.81Despiteattemptstomediateby
theIraqiNationalCongress,82ironicallyapredominantlyAraboppositionparty,
tensionscontinuedtoescalate.Anotherattempttomediate,theDroghedapeace
talks,tookplacein1995inIreland.BothpartiesagreedtodemilitarizeErbil,the
turnoverofKDPcustomsrevenuestoajointbankaccount,reconveningtheKRG,
andreassuringoutsidepartiesoftheirdedicationtoIraq’sintegrityandTurkey’s
interests.83
Unfortunately,thetalksfailedin1996whentheKDPallieditselfwiththe
Ba’athpartyinanattempttoretakeErbilandSulaimaniyaandfightingensued.84
Laterthatyear,thetwopartiesestablishedtheirnewheadquarters,thePUKin
SulaimaniyaandtheKDPinErbil;85untilthedétentewassignedin1998,thetwo
partiesoperatedastwoseparateadministrativeunits,makingprogressdifficultbut
notimpossible.TheKRGexperiencedlimitedsuccessesduringthisperiod,including
the1992elections,rebuildingofvillages,economicandcivilsocietygrowthand
80Ahmed,9.81McDowall,386.82McDowall,387.83KeremYildiz,TheKurdsinIraq:ThePast,PresentandFuture,(London:PlutoPress,2004)49.84Ibid.85HiraandJabary,102.
19
development,anddegreesofliberation,whichwillbediscussedinthefollowing
sectiondevotedtonon-governmentalandhumanitarianaidorganizations.86
Theceasefire,signedSeptember17,1998inWashingtonD.C.,stipulated
measuresforpowersharingbetweentheKDPandthePUK,andthetwogroups
coordinatedactivitiesbeginningin2000.87FollowingtheSeptember11,2001
attacksontheUnitedStates,theKurdsplayedanimportantroleinpreparationfor
theU.S.invasionin2003.TalabaniandBarzanirealizedthesurvivaloftheKRG
wouldbedependentontheU.S.afterSaddam’sfallandagreedtoassistinmilitary
andcounter-terrorismcapacitiesaslongastheirsafetywasguaranteed.88However,
itwasnotuntiltheconclusionoftheSecondGulfWarthattheKRGbegantoinvolve
itselfinBaghdad’spoliticalsphereandinfluencetheoutcomeofcentralgovernment
proceedings.
InternationalAidandRebuildingIraqiKurdistan:1992-2003
Theinternationalcommunityplayedamajorroleinthecreationofasemi-
autonomousKurdishstateinnorthernIraq,particularlyintheformoffinancialaid.
DeniseNatali,oneoftheforemostresearchersregardingtheKurdishquestionin
Iraq,Syria,Iran,andTurkey,dividedthedecadefrom1992-2003intotwoperiods:
NGODependency(1992-1996)andOilForFoodProgram(OFFP)(1996-2003).
FollowingtheFirstGulfWar,IraqiKurdistanexperiencedadoubleeconomic
embargobytheUNandthecentralIraqigovernment.TheUNembargoprevented86DavidRomano,“TheStruggleforAutonomyandDecentralization–IraqiKurdistan,”FromDesolationtoReconstruction:Iraq’sTroubledJourney,Ed.MokhtarLamaniandBessmaMomani,(Waterloo,Ontario:WilfridLaurierUniversityPress,2009)56-57.87Aziz,88.88Yildiz,TheKurdsinIraq:ThePast,PresentandFuture,103.
20
thesaleofoil,limitedfoodavailability,prohibitedexternaltradeandencouraged
inflation,whiletheIraqiembargoreinforcedthefoodshortagethrougharationing
system.89Duringthisperiod,themajorityofKurdistan’srevenuederivedfrom
tariffsimposedontrafficcrossingthebordersfromSyria,Turkey,andIran.90
ThefocusoffinancialaidduringtheNGODependencyperiodwason
immediatereliefratherthanlong-termdevelopment;assistancewasprovidedinthe
formoffoodandfuelhandoutsonthebasisofsix-monthcontingencyplansrather
thanlong-termmacroeconomicreform.91SomeorganizationschosetoaidIraqi
Kurdistanexclusively,ratherthanIraqasawholebasedonBaghdad’stendencyto
micromanaging,92andthefundingpaidteachingsalaries,implementedschool
feedingprograms,reconstructedvillages,resettledinternallydisplacedpersons,
rebuiltaccessroads,andbegantherevivaloftheagriculturalsector.93
WhiletheaidprogramssucceededininitiatingtherebuildingofIraqi
Kurdistan,theyfailedtoprovidethegroundworkforsustainable,long-termprojects
tokeeptheregionafloat.TheKurdsswitchedtheirdependencyfromBaghdadtothe
NGOs;bythemid-1990s,70%ofthepopulationwasdependentoninternational
reliefandthemostskilledworkerswenttoworkforNGO’sorU.S.-ledprojects.94
Thelackofdevelopmentledto“corruption,thedisparityofwealth,internalconflict
betweentheKDPandPUKoverresources,andthestagnationofsocio-political
89DeniseNatali,“TheSpoilsofPeaceinIraqiKurdistan,”ThirdWorldQuarterly,28.6(2007)1112.90Yildiz,TheKurdsinIraq:Past,PresentandFuture,67.91Natali,1113-1114.92Yildiz,TheKurdsinIraq:ThePast,PresentandFuture,75.93Natali,1113.94Natali,1114.
21
norms(lackofgrowthintheprivatesector,freetradedevelopment,andforeign
investment).”95
ThesecondphasedescribedbyNatali,theOilforFoodProgram(OFFP)
period,lastedfrom1996totheSecondGulfWar.TheOFFP,implementedbytheUN
underResolution986,passedbytheUNSecurityCouncil,shiftedthefocusfrom
relieftodevelopment,andallotted13%ofthetotalaidforIraqtobeusedinthe
north.TheUNOfficeoftheHumanitarianCoordinatorinIraq(UNOCHI)wastoact
onbehalfofthecentralgovernmentinordertoprocure,transport,anddeliveraid
toregion;theaidinitiallytotaled$29million,withanadditional$9.8billionin
interestoveroilsalefundsandcurrencyexchangegains.96Thefinancialaidwasto
bedistributedin13six-monthphases,butonly51%ofthefundswerereceived
duringtheperiod.97Evenwithoutthefullallotmentoffunding,Dohuk,Erbil,and
Sulaimaniyaexperiencedgrowthanddevelopment;factorieswerebuilt,theprivate
sectordeveloped,andfoodavailabilityandsocialconditionsimproved.98TheKRG
alsoexperiencedpositivegrowthduringtheOFFP;theUNincorporatedlocal
personnelintolegitimategoverningbodiesandessentiallygavelessonsingood
governingpolicies.99
Unfortunately,theOFFPperiodalsoperpetuatedthedependencyon
internationalinvestment.ImplementersoftheOFFPwantedtoavoidsteppingon
thetoesofBaghdadand,asaresult,didnotintroducemajoreconomicorsocial95Natali,1115-1116.96Natali,1116.97Ibid.Theremaining49%stayedinaFrenchbankforfiveyearswhileaccruinginteresttobenefitSaddam’sregime,theUN,andprivateinvestors.98Natali,1117.99Ibid.
22
reforminIraqiKurdistan.Thetrialrunperiodforthesemi-autonomousregion
illuminatedtheglaringeconomic,social,andpoliticalissuesfacingtheKRGforthe
future.ItwasnotuntiltheSecondGulfWarandpost-warperiodthatthearea
experiencedthedevelopmentsandchangesrequiredforanautonomousregionand
certainlyanindependentstate.
TheKurdsinPost-SaddamIraq:2003-2011
PoliticalChange:KurdishIntegrationintoBaghdad’sPoliticalSphere
OnMay6,2003,shortlyaftertheinvasionofIraq,theUnitedStates
establishedtheCoalitionProvisionalAuthority(CPA)headedbyPaulBremer,with
thegoalofadministeringtheexecutiveaspectsofIraq’sgovernment.100TheCPA
wasapprovedbytheUN,whichinturnadoptedResolution1483toformally
authorizetheCPA’sactivities.TheResolutionacknowledgedthecreationoftheIraq
GoverningCouncil(IGC),anIraqigoverningbodythatwouldnottakeoverthe
dutiesoftheCPAuntil“aninternationallyrecognizedrepresentativegovernment
wasformed.”101TheICGwascreatedonJuly13,2006despiteprotestsfromthe
sevenmajoroppositiongroups,andtheresultwasa25-membercouncil,fiveof
whomwereKurds.102TheIGCwasgrantedmoreauthoritythaninitiallydiscussed,
andonNovember15,2003,thecouncilannounceditsintentiontoacceleratethe
powertransfertoatransitionalgovernment.103
100Yildiz,TheKurdsinIraq:ThePast,PresentandFuture,117.101Ibid.102Yildiz,TheKurdsinIraq:ThePast,PresentandFuture,118.103Yildiz,TheKurdsinIraq:ThePast,PresentandFuture,119.
23
TheTransitionalAdministrativeLaw(TAL)wentintoeffectMarch8,2004as
aninterimconstitutionforafederal,democraticIraqistate104withthespecificgoals
of:restoringsovereigntytoIraqbyJuly1,2004,electinganIraq-wideassemblyby
January31,2005,anddraftingapermanentconstitutionbyAugust15,2005,its
ratificationpending“theapprovaloftheIraqimajorityandiftwo-thirdsofthe
votersinthreeormoregovernoratesdonotrejectit.”105TheTALacknowledgedthe
heterogeneousnatureofIraqisocietyandrecognizedthelegitimacyofArabs,Kurds,
Turkmen,Assyrians,andArmeniansasnationalitieswithintheIraqistate,even
thoughArabicandKurdisharetheonlytwoofficiallanguages.106The18
governoratesofSaddam’sregimewererecognizedasfederativeentities,and
Kurdistancontainedthreefullgovernorates,Dohuk,Erbil,andSuleimaniya,with
portionsofDiyalaandNineva.107Article56statedthefederalgovernmentwould
begindivvyingupresponsibilitiestolocal,governorate,andregional
administrations,grantingtheKurdistanregionmuchmorepowerthanitsawunder
Saddam’srule.ThelawalsoaddressedthestatusofKirkuk,oneofthedisputed
territoriesbetweentheKRGandBaghdad;Article58deferredresolutiononKirkuk
untilacensusdeterminedwhichindividualsremovedfromtheirhomesduring
Saddam’srulecouldreturnorbecompensated.
104Gunter,15.ThefulltextoftheTransitionalAdministrativeLawcanbefoundinAppendix2ofTheFutureofKurdistaninIraq,Ed.BrendanO'Leary,JohnMcGarry,andKhālidSālih.(Philadelphia:UofPennsylvania,2005)315-340.105BrendanO’Leary,“Power-sharing,PluralistFederation,andFederacy,”TheFutureofKurdistaninIraq.Ed.BrendanO'Leary,JohnMcGarry,andKhālidSālih,(Philadelphia:UofPennsylvania,2005)48.106O’Leary,49.107O’Leary,67.
24
TheTALmarkedthefirsttimetheKurdsweretrulyinvolvedinthedecision
makingprocessesinBaghdad,andthe2005Constitutionwasthelogicalnextstep
forinclusivity.The2005Constitutionwasdraftedbya55-personcommittee(28
Shi’acoalition,15Kurdishlist,eightIyadAlawi’sal-Iraqialist,oneChristian,one
Turkman,oneCommunist,andoneSunni,although14otherswereeventually
addedafterpressurefromtheSunnicommunity)asadecentralized,federal
constitution,andwasratifiedbya78.59%majorityonOctober15,2005.108The
2005ConstitutionwasabigwinfortheKRGsinceitrecognizedtheKurdsasan
Iraqiethnicgroup,acknowledgedKurdishautonomy,delineatedaplanfora
decentralizedIraq,andincludedprovisionsregardingthedisputedterritories,
primarilyKirkuk.109Article140addressedthequestionofthedisputedterritories
bypromisingacensus,normalization,andreferendumtodeterminethefinalstatus
byDecember31,2007.
Twomonthslater,thefirstgeneralelectionwasheldonDecember15,2005
inordertoelectthe275newmembersoftheIraqiNationalAssembly;ofthe275
seats,230weredividedbetweenthe18governoratesbasedonregisterednumbers
(including59forBaghdad),45compensatoryseatswerereservedforsmaller
politicalparties,while25%ofthetotalseatswereallottedtowomen.110Areported
79.6%,or11.9million,registeredvotersparticipatedintheelectionsatan
108SaadN.Jawad,“TheIraqiConstitution:StructuralFlawsandPoliticalImplications,”LSEMiddleEastCentrePaperSeries1(November2013)10.109DavidRomano,“IraqiKurdistan:ChallengesofAutonomyintheWakeofUSWithdrawal,”InternationalAffairs86.6(2010)1349-1350.110Yildiz,“TheKurdsinIraq”,39-40.
25
estimated31,000pollingstations.111The2005generalelectionresultedin54seats
fortheKurdishalliance112andthedesignationofNourial-Maliki,deputyleaderof
theDawaparty,asPrimeMinister;al-Maliki’s37membercabinetwasapproved
May20,2006andincludedmembersofallmajorpolitical,religious,andethnic
groups.113Overthecourseofal-Maliki’sfirstgovernment,hefocusedonthree
things:buildingarelationshipwiththeU.S.anditsallies,containinginsurgency
movements,andimplementingthe2005constitution.114
AsthecentralIraqigovernmentmovedoutofitsinfancy,theKRG
experienceddevelopmentsofitsown.ThePUKandKDPreconfirmedtheir
commitmenttoreunifyJanuary7,2006,inordertobringallthreeprovincesunder
oneadministration.115Theaccordestablishedtermsforpowersharingbetweenthe
PUKandKDPwhiledisenfranchisingsmallerparties.116Newpositionswithinthe
KRGwerecreatedforthePUK,oneforvicepresidentandanotherfordeputyprime
minister,andtheministriesoftheinterior,finance,peshmerga,andjusticewere
reunited.117
TheKurdsexperiencedlesspromisingdevelopmentsfrom2007to2010.
2007broughtanincreaseininsurgencymovements,althoughtheyweregenerally
relegatedtothesouthandwerenotaswidespreadintheKurdishregiondueto
cohesiveeffortsbetweenciviliansandsecurityforcesandahard-lineapproachby
111Yildiz,“TheKurdsinIraq”,40112TheKRGparticipatedinthe2005electionononelistandmixedthecabinet.113Yildiz,“TheKurdsinIraq”,41.114Yildiz,“TheKurdsinIraq”,45.115Ahmed,12.116Ahmed,Ibid.117Ahmed,14.
26
theKRG.118InAugust,thefiveremainingpartiesoftheal-Malikigovernmentformed
theModeratesFronts,anallianceholding130seatsandessentiallycreatinga
monopolyoftheparliament.119TheKurds’primarycauseforconcernof2007was
thefailuretoaddressthestatusofKirkuk;December31,2007cameandwent
withoutthepromisedcensus.
ThesituationinKurdistandeterioratedthroughout2008andinto2009.In
2008,al-Malikibeganconsolidatingpower,creatingtensionswithotherpartieswho
foundhismethodseerilysimilartothoseofSaddamandtheBa’athparty.The
January31,2009elections,heldunderanopenlistsystem,showedtheincreasein
interestinIraqiArabnationalistparties;al-Maliki’sStateofLawpartytriumphed
whiletheIslamicSupremeCouncilofIraqParty(ISCI)wasdefeated.120Thethree
KurdishgovernoratesandKirkukdidnotparticipateintheseelections,whichmay
havecontributedtothesuccessesofal-Malikiandhisparty.TheKRGexpressed
frustrationoveranumberofal-Maliki’smovesincludingtherecruitmentand
armingof“supportcouncils”inKurdishareas,thedeploymentofIraqitroopsto
disputedareas,thepassingofdeadlinesregardingdisputedterritories,andthe
questionofpowersharing.121
118Yildiz,TheFutureofKurdistan:TheIraqiDilemma,55.Insurgencygroupsinclude:Ba’athists,IraqiNationalists,IraqiIslamists(primarilyMuslimBrotherhoodorSalafimovements),Shi’iteinsurgents,foreigngroups(e.g.Al-Qaeda),theIslamicStateofIraq,PartisansoftheSunnahArmy,theIslamicArmyinIraq;theIslamicFrontoftheIraqiResistance,theFirstFourCaliphsArmy,Mujahidin’sArmy,andMuhammad’sArmy.119Yildiz,TheFutureofKurdistan:TheIraqiDilemma,43.120Romano,“TheStruggleforAutonomyandDecentralization–IraqiKurdistan,”58-59.121Romano,“TheStruggleforAutonomyandDecentralization–IraqiKurdistan,”60.
27
Unfortunately,al-Maliki’sgovernmentwasnottheonlyproblemforthe
Kurds.AnoffshootofthePUKformedduetointernalstrife,andonApril16,2009
NawshirwanMustafaannouncedtheestablishmentofGorran(ChangeMovement),
althoughitwasnotformallyrecognizedasapoliticalorganizationuntilMay1,2010.
GorrancriticizedthefailuresoftheKRGtobringaboutsignificantchangeinregards
tothestatusofKirkukandtheguaranteesofKurdishrights.Gorrancapturedthe
interestofvotersunhappywiththeKDPandPUK,andinthe2009elections,the
newpartytook25ofthe111seatsintheKurdistanRegionalParliament.122
TheKurdsdidnotfaremuchbetterin2010and2011.TheMarch7,2010
parliamentaryelectionsreflectedthecontinuedsupportforIraqinationalism,with
theIraqiNationalMovementcominginfirstandtheStateofLawCoalitionsecond,
eventhoughtheKurdishAllianceswonthelargestnumberofseats.123Inorderto
formagovernment,al-MalikimadepromisestotheKurdsregardingoilrevenues
andthestatusofKirkukinexchangefortheirsupport.124Threemonthslater,the
KRGattemptedtoaddressitsinternaldivisionsbyhavingtheKDPandPUKsigna
secondagreementregardingtheircommitmenttothefutureofKurdistanandits
bestinterests.
However,inJanuaryof2011,Kurdistanwasagainembroiledininternal
conflict.AJanuary27,2011meetingbetweenTalabaniandBarzaniresultedinacall
fortheimprovementoflivingstandards;inresponse,Gorranrequestednew
122Ahmed,20.123Yildiz,TheFutureofKurdistan:TheIraqiDilemma,47.124MichaelM.Gunter,“TheKurdishSpring,”ThirdWorldQuarterly34.3(2013)445.
28
elections,onethatwasrejectedbyTalabaniandBarzani.125TheeventsofJanuary
ledtodemonstrations,andonFebruary17,2011,3,000Kurdsgatheredin
Sulaimaniyatoprotestcorruption,nepotism,andthemonopolyofpoliticaland
economicpowerbytheKRG.126DespiteKRGattemptstocrackdownonprotestors,
demonstrationscontinued;asecondmajorprotestoccurredonFebruary24,2011
whentheself-proclaimed“PatrioticKurdishScholars”calledfortheeradicationof
KRGcorruption,unificationofpartymilitias,respectingfreedomsofexpressionand
women’srights,thecreationofjobs,thedeclarationofunilateralindependence,and
theclosingofTurkishandIranianoutposts.127Inanattempttoassuagediscontent,
theKRGproduceda17-point128plantoaddresstheissuesofdemonstratorsandby
March11,2011,themajorpartieshadreconciled.
Inadditiontointernaldiscord,theKRGfacedtheU.S.withdrawalandal-
Maliki’scontinuedattemptstoconsolidatehispowerinBaghdadin2011.Following
theU.S.withdrawal,al-Malikiincreasedhiscontroloverthecentralgovernment,a
processthathadbeenoccurringsince2008.Inadditiontofulfillingthepostof
PrimeMinister,al-MalikiactedasMinisterofDefense,MinisteroftheInterior,and
MinisterofStateforsupposednationalsecurityreasons.129Otheractsof
centralizationincluded:bureaucraticcleansingofKurdsandSunnipoliticians,130as
125Ahmed,27.126Ahmed,31.127Ahmed,34.128ThedetailsoftheKRG’s17-pointplancanbefoundonAhmed,31-34.129BurakBilgehanOzpek,“DemocracyorPartition:FutureScenariosfortheKurdsofIraq,”InsightTurkey14.3(2012)134.130Ibid.
29
wellasincreasingcontrolovertheintelligenceservice,thearmy,thepolice,
supremecourt,andthecentralbank.131
Socio-EconomicDevelopmentsandForeignInvolvement
Thesocio-economicdevelopmentsofIraqiKurdistanandforeign
involvementhavebeencloselylinkedsincetheestablishmentofthesemi-
autonomousregion.Manyoftheinternaldevelopmentswouldnothavebeen
possiblewithoutthebackingofforeignpowers.FinancialaidinIraqiKurdistan
evolvedintoprogramsfocusedonlong-termdevelopment,promotinggood
governance,andliberalizationbetween2003and2007.132Despitediminished
allocationstoKurdistanduetorelativestability,Kurdishnationalism,andgreater
needinthesouthernandcentralregionsofIraq,IraqiKurdistanexperienced
growthintheeconomicandsocialspheres.133Inadditiontothe17%allotment
(estimated13%aftertaxdeductions)ofIraq’stotalrevenues,134theKRGalsoenjoys
revenuesfrominternalgrowthandexternalfunding.
Throughouttheearly21stcentury,Kurdistanenjoyedthecreationofa
businessclass,thedevelopmentoffreemarketlaws,anincreaseinthetourism
industry,andthecreationofalargeinternationalmarketintheoilandnaturalgas
industry.Asaresultoftheincreasedrevenuesandtrafficintheregion,an
131WladimirvanWilgenburg,“BreakingfromBaghdad:KurdishAutonomyvs.Maliki’sManipulation,”WorldAffairs(November/December2012)51.132Natali,“TheSpoilsofPeaceinIraqiKurdistan,”1119.133Ibid.134Natali,TheKurdishQuasi-State:DevelopmentandDependencyinPost-GulfWarIraq,105.
30
internationalairport135wasbuiltinErbiltoaccommodateinvestors;travelersare
abletoflyfromErbildomestically(Basra,Baghdad,Najaf,orSulaimaniya),or
internationallytohubsintheMiddleEastandEurope.Thefinancialaidprovidedby
NGOsandhumanitarianorganizationsbetween1991-2003createdthenew
businessclass,whoinvestedinland,whichinturn,wastransformedfromfarms
intotouristandrecreationcenters.136Theseprojectsincreasedconcernsofthose
focusedonenvironmentalprotectionorfoodproduction,astourismcenterstook
awayresourcesforboth,andtheKRGeventuallycreatedincentivesforfarmers
willingtoworktheirland.137
Inordertoboosttheeconomy,theKRGpassedfreemarketlawsandcreated
incentivesinordertoattractinvestmentfromforeignpowers.Turkish,PersianGulf,
European,andAmericancompaniespreferredthe10yeartaxexemptionsandfree
landgrantswiththerighttotransferprofitsinternationallyinKurdistan,rather
thanattemptingtonegotiatewithBaghdad.138Thetourismindustrydidwellin
Kurdistan;especiallyduringthesummermonths,theregionbegantocompetewith
LebanonandSyriaforcentralandsouthernIraqiandGulfstatetourists.139Foreign
companiesfromLebanonandtheGulftooknoticeoftheriseintourists,butused
foreignratherthanKurdishworkers,sincethelocalpopulationwasgenerallyless
skilled.140
135TheErbilairportwasnotusedasacivilairportuntil2003;thelandwaspreviouslyusedforanairfieldandamilitarybasefortheBa’athpartyuntil1991.136Ahmed,70.137Ahmed,80.138Ahmed,70.139Ahmed,83.140Ibid.
31
TheoilandnaturalgasreservesinKurdistanarewithoutadoubtthe
greatestresourcetheIraqiKurdspossess.KRGterritorycomprisesanestimated8-
13%ofIraqioilreservesand17%ofIraqinaturalgasresourceswithanestimated
12billionbarrelsofoiland22trillioncubicfeedofnaturalgas.141In2004,following
thecollapseoftheBa’athregime,theKRGsigneditsfirstcontractwithDNO,and
productionbeganin2007.Frustratedbytherestrictionsofnationallaws,theKRG
passeditsownhydrocarbonlawin2007,allowingthemtheindependenceto
negotiatecontractswithinvestors.Asof2013,over41companiesareinvestedin
theoilandgasfieldsofKurdistan,allofwhichareownedbythePUKandKDP
respectively,ratherthantheKRG.142TheKRG’smostrecentprojecthasfocusedon
thenaturalgasresources,andrecentlyannounceda461millionsquarefootsitefor
theKurdistanGasCity,aswellas180kilometerpipelineprojectconnectingKhor
MorgasfieldtoSulaimaniyaandErbil.143Turkeyhasbeentheprimarybeneficiary
ofKurdishresources,buttheKRGhasrecentlynegotiatedproduction-sharing
contracts(PSCs)withAmerican,European,andSouthKoreancompanies,144
includingChevron,ExxonMobil,Total,andGazProm.145
Thesedevelopmentshavebeenoneofthesourcesofcontentionbetween
ErbilandBaghdadsince2003.Baghdadmaintainsithasthesolerighttonegotiate141YasarYakis,“TurkeyaftertheArabSpring:PolicyDilemmas,”MiddleEastPolicy21.1(2014)100-101.142HiraandJabary,106.143Ibid.144Natali,TheKurdishQuasiState:DevelopmentandDependencyinPost-GulfWarIraq,109.145BillPark,“Turkey’sMultipleKurdishDilemmas,”OrtadoğuEtütleri5.1(July2013):45-46.SeealsoMassimoMorelliandConstantinoPischedda,“TheTurkey-KRGEnergyPartnership:AssessingItsImplications,”MiddleEastPolicy21.1(2014)108-109.
32
withforeignpowersovernaturalresources,astheseresourcesarecommon
property,butErbilcontinuestonegotiatecontracts;therehavebeenseveral
proposedagreementsregardingtheexportofoilbutallhavebeenmarredby
Baghdad’sdelayedpaymentsortheKRG’snon-compliancewiththeterms.146The
October2011ExxonMobilagreement,the2012oilandgaspipelineswithTurkey,
andthe2012NaboccogaspipelineagreementwiththeUAE’sDanaGashaveall
exacerbatedtensions.147
Kurdishprogresswasnotwithoutsetbacks,andtherewereseveralmajor
issuesthataroseduringthepost-Saddamperiod.Corruptionhasbecomeoneofthe
primarypointsofcontentionfacingtheKRG.Ina2012reportpublishedbythe
KurdishRegionalReformCommission(KRRC),theKRGwasfoundtobeincredibly
corruptbasedon“poorgoverningperformance,partisanloyalty(primarily
providingjobsbasedonneedratherthanqualifications),andweakagendas.”148
DespiteprotestsfromlocalKurdsandattemptstorectifythesituation,significant
progresshasnotbeenmade.
LocalKurdsalsocontributedtoroadblocksinsocio-economicdevelopment.
Eventhougheconomicgrowthledtoincreasedstandardsofliving,theattitudesof
thelocalpopulationdidnotenjoythesameevolution.Traditionalvaluesclashed
withthenewdevelopmentsintheregion.DespitetheKRG’spromotionofschool
constructionwithinKurdishlocalities,somecontinuedtoopposeeducation.149The
146MorelliandPischedda,109.147Ahmed,75andOzpek,134-135.148JabaryandHira,108.149Natali,TheKurdishQuasi-State:DevelopmentandDependencyinPost-GulfWarIraq,115.
33
statusofwomenalsoexperiencedminimaldevelopmentduringthisperiod;high
ratesofteenagemarriage,polygamy,honorkillings,femalegenitalmutilation,and
divorceremainprevalent.150
CurrentDevelopments:2012-2015
Therearefewacademicsourcesregardingthepolitical,socio-economic,and
foreignpolicydevelopmentsinIraqinvolvingtheKurdsfrom2012-2015.Kurdish
politicalpartiescontinuetobattleforcontrolofBaghdadandwithintheKRGforthe
majorityofseatsinKurdishparliament.Barzaniextendedhispresidentialterman
additionaltwoyears,and2013parliamentaryelectionsresultedintheKDPholding
thelargestnumberofseats,followedbyGorranandthePUK.In2014thefocus
switchedfromindependencetofightingtheIslamicState;Barzani’sinitialcallfora
2014independencereferendumwasrevokedafteritwasdecidedtheIslamicState
wasamorepressingmatterthanKurdishindependence.Baghdadexperienceda
changeinpowerwhenHaideral-AbadiassumedtheroleofIraqiPrimeMinister,but
ErbilcontinuestorecognizeBarzaniaspresidentoftheKRGdespitepresidential
electionsbeingscheduledforAugust20,2015.
Analysis:LeverageorIndependence?
TheKurdshavedevelopedarelativelysuccessfulquasi-stateinnorthern
Iraq.Gunteraptlystatesthatwithapresident,primeminister,parliament,regional
elections,flag,nationalanthem,peshmerga,airport,Kurdisheducationsystem,and
passportstamps,Kurdistanhasthetrappingsofanindependentstate.151TheKRG
150Natali,TheKurdishQuasi-State:DevelopmentandDependencyinPost-GulfWarIraq,116.151Gunter,“TheKurdishState,”445.
34
hasdevelopedforeigncontacts,sendingdiplomaticrepresentativesabroadand
housingforeignconsulatesinErbil,152andutilizedtheirnaturalresourcesto
jumpstarttheeconomy.However,thesepositivedevelopmentsarenotsufficientfor
KurdishsecessionfromcentralIraq.
TheKRGcontinuestorelyheavilyonBaghdadforanumberofresources.The
17%cutoftotalIraqirevenuesisnecessarytokeeptheregionafloat,particularlyif
theKRG’sclaimofthisamountbeinginsufficientforKurdishneedsisaccurate,as
wellasthedependenceonthecentralgovernmentforthesalariesofministersand
judgeslinkedtotheCourtofCassation.153KurdistanisalsotiedtocentralIraq
throughcommercialbusinessventuresandculture.BusinessmentraveltoBaghdad
tosigncontractsregardingfoodandconstructionimports,andatraderelationship
isstillactiveregardingoilandgas,householdgoods,food,andautomobiles.154
Linguisticallythetwoareasarebound,aspolitical,religious,business,and
occasionallypersonalinteractionstakeplaceinArabic.155
ThesupportofcentralIraqandinternationalpartnersisalsoaroadblockto
thepotentialsecessionofKurdistan.Inordertokeeptheeconomyafloat,the
investmentofforeigncompanieswouldbeavitalcomponentofanindependent
Kurdistan,butanindependentKurdishstatewouldnotsitwellwiththemajorityof
theregion’sneighborsandcurrentpartners.TheKRG’sneighborsintheMiddleEast
wouldvehementlyopposethesecession.Baghdadwantstomaintainitsterritorial152Ahmed,205.153Natali,TheKurdishQuasiState:DevelopmentandDependencyinPost-GulfWarIraq,119.154Natali,“TheSpoilsofPeaceinIraqiKurdistan”,1124.155Natali,155Natali,TheKurdishQuasiState:DevelopmentandDependencyinPost-GulfWarIraq,122-123.
35
integrityandcontinuetoenjoythenaturalresourcesfromtheKurdishregion;
secessionwouldlikelyresultintheeliminationoffinancialaidtheKRGenjoysfrom
theIraqigovernment.Turkey’smajorqualmwithKurdishsecessionwouldbethe
threatofasimilaruprisingwithinitsownKurdishminority,andtheeconomyof
KurdistanfacespossiblecollapseifTurkeypulleditsfinancialinvestorsandcutoff
trade.
Conclusion
TheKurdsofIraqhavemadetremendousstridesintheirquestfor
recognitionandautonomysincetheemergenceofKurdishnationalismintheearly
20thcentury.AfteryearsofviolenceandpersecutionbytheBa’athregimeand
internaldiscordbetweenKurdishparties,the1990sand2000ssawthe
establishmentofasemi-autonomousregionthathasenjoyedincreasinginfluencein
BaghdadandtheMiddleEast.TheKRG’sdecisiontotableindependencediscussions
inlightofthecurrentIslamicStatecrisisisthebestmovefortheregion.Iraqi
Kurdistanfaredwellinthe2005IraqiConstitutionandbenefitsfromitssemi-
autonomousstatuswithoutthepressuresfacinganindependentstate.TheKRGis
abletousethethreatofsecessionasabargainingchipwithBaghdad,and
independencewouldleaveErbilwithoutmuchleverage.Fortheforeseeablefuture,
IraqiKurdistanshouldremainasemi-autonomousregioninnorthernIraqand
continuetodeveloppolitically,economically,andsocially.
36
AppendicesAppendixA156
156Yildiz,TheKurdsinIraq:ThePast,PresentandFuture,xi.
37
AppendixB157
157Ahmed,xix.
38
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