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THE MANAGEMENT of the UNITED NATIONS OIL-FOR-FOOD PROGRAMME Volume III - Report of Investigation United Nations Administration, Part I

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THE MANAGEMENT of the UNITED NATIONS OIL-FOR-FOOD PROGRAMME Volume III - Report of Investigation United Nations Administration, Part I THE MANAGEMENT OF THE UNITED NATIONS OIL-FOR-FOOD PROGRAMME Volume III - Report of Investigation United Nations Administration, Part I The Secretariat and the Office of the Iraq Programme: Functions and Responsibilities The Secretariat’s Administration of the Programme from New York The Secretariat’s Administration of the Programme in Iraq The Secretariat’s Response to Sanctions Violations The 38th Floor The Secretariat: Findings and Conclusions The Selection of Cotecna Inspection S.A. Paul A. Volcker, Chairman Richard J. Goldstone, Member Mark Pieth, Member September 7, 2005 www.iic-offp.org INDEPENDENT INQUIRY COMMITTEE INTO THE UNITED NATIONS OIL-FOR-FOOD PROGRAMME MANAGEMENT OF THE OIL-FOR-FOOD PROGRAMME VOLUME III - TABLE OF CONTENTS CHAPTER 1 – THE SECRETARIAT AND THE OFFICE OF THE IRAQ PROGRAMME: FUNCTIONS AND RESPONSIBILITIES....................................... 1 I. INTRODUCTION.................................................................................................... 1 II. THE ROLE OF THE SECRETARIAT UNDER SECURITY COUNCIL RESOLUTIONS 661 AND 986 ........................................................... 2 III. CREATION OF THE OFFICE OF THE IRAQ PROGRAMME...................... 4 IV. THE SECRETARIAT’S ADMINISTRATION OF THE PROGRAMME THROUGH OIP........................................................................ 10 A. THE OFFICE OF THE EXECUTIVE DIRECTOR ........................................................ 11 B. CONTRACTS PROCESSING AND MONITORING DIVISION ...................................... 12 C. PROGRAMME MANAGEMENT DIVISION............................................................... 16 D. UNITED NATIONS OFFICE OF THE HUMANITARIAN COORDINATOR IN IRAQ ........ 17 E. OVERSIGHT FROM THE 38TH FLOOR ..................................................................... 18 F. ORGANIZATIONAL CHART................................................................................... 19 CHAPTER 2 – THE SECRETARIAT’S ADMINISTRATION OF THE PROGRAMME FROM NEW YORK .......................................................................... 21 I. INTRODUCTION.................................................................................................. 21 II. CHALLENGES TO CONTRACTS PROCESSING.......................................... 22 A. INADEQUATE EXPERTISE AMONG CUSTOMS EXPERTS......................................... 22 B. LIMITED NATURE OF THE CUSTOMS REVIEW PROCESS ....................................... 27 C. UNCLEAR AUTHORITY TO REJECT CONTRACTS ON PRICING GROUNDS .............. 28 D. EFFECT OF INADEQUATE CUSTOMS REVIEW ....................................................... 29 III. INADEQUATE OVERSIGHT OF FIELD OPERATIONS.............................. 31 A. UNCLEAR ROLES, RESPONSIBILITIES, AND REPORTING LINES ............................ 31 B. MARGINALIZATION OF PROGRAMME MANAGEMENT DIVISION........................... 36 C. INTERFERENCE WITH EFFORTS TO AUDIT THE PROGRAMME MANAGEMENT DIVISION .................................................................................... 41 CHAPTER 3 – THE SECRETARIAT’S ADMINISTRATION OF THE PROGRAMME IN IRAQ .............................................................................................. 47 I. INTRODUCTION.................................................................................................. 47 i INDEPENDENT INQUIRY COMMITTEE INTO THE UNITED NATIONS OIL-FOR-FOOD PROGRAMME MANAGEMENT OF THE OIL-FOR-FOOD PROGRAMME VOLUME III - TABLE OF CONTENTS II. THE GOVERNMENT OF IRAQ’S INTERFERENCE WITH THE SECRETARIAT’S FIELD OPERATIONS ........................................................ 48 A. EARLY RESISTANCE TO UNOHCI’S OPERATIONS .............................................. 48 B. IRAQ’S EFFORTS TO MONITOR UNOHCI STAFF ................................................. 49 C. AN ATMOSPHERE OF FEAR AND INTIMIDATION................................................... 52 D. EXPULSION OF UNOHCI STAFF ......................................................................... 53 III. THE OBSERVATION MECHANISM IN IRAQ............................................... 58 A. BACKGROUND..................................................................................................... 58 B. INADEQUACIES OF THE OBSERVATION AND REPORTING MECHANISM ................ 61 CHAPTER 4 – THE SECRETARIAT’S RESPONSE TO SANCTIONS VIOLATIONS................................................................................................................. 67 I. INTRODUCTION.................................................................................................. 67 II. THE ROLE OF THE SECRETARIAT IN SANCTIONS MONITORING AND REPORTING ................................................................... 69 III. KICKBACKS ON PROGRAMME CONTRACTS ........................................... 73 A. EARLY WARNINGS.............................................................................................. 73 B. AN EMERGING PATTERN OF KICKBACK PAYMENTS............................................ 78 C. THE “JOHNSTON NOTE”...................................................................................... 93 D. REACTION TO THE JOHNSTON NOTE.................................................................. 108 E. GLASSCO LABORATORY EQUIPMENTS—FURTHER KNOWLEDGE BY THE DEPUTY SECRETARY-GENERAL AND CHEF DE CABINET....................... 113 F. CONTINUED KICKBACK PAYMENTS .................................................................. 115 G. SECRETARIAT’S RESPONSE TO KICKBACKS ALLEGATIONS ............................... 120 H. CONCLUSION..................................................................................................... 123 IV. OIL SURCHARGES ........................................................................................... 125 A. EARLY WARNING—1998.................................................................................. 125 B. AWARENESS OF SURCHARGES—OCTOBER/NOVEMBER 2000........................... 127 C. IRAQ HALTS PROGRAMME EXPORTS—DECEMBER 2000 .................................. 131 D. ADDRESSING THE IRAQI REGIME’S RECEIPT OF SURCHARGES: ACTION AND INACTION BY THE SECRETARIAT ............................................................... 135 E. THE IRAQI REGIME’S CONTINUED RECEIPT OF SURCHARGES ........................... 139 F. RETROACTIVE PRICING MECHANISM ................................................................ 140 G. SECRETARIAT’S RESPONSE TO SURCHARGE ALLEGATIONS .............................. 147 H. CONCLUSION..................................................................................................... 148 ii INDEPENDENT INQUIRY COMMITTEE INTO THE UNITED NATIONS OIL-FOR-FOOD PROGRAMME MANAGEMENT OF THE OIL-FOR-FOOD PROGRAMME VOLUME III - TABLE OF CONTENTS V. OIL SMUGGLING.............................................................................................. 149 A. EARLY WARNINGS............................................................................................ 149 B. IRAQ’S OIL EXPORTS TO TURKEY ..................................................................... 151 C. IRAQ’S OIL EXPORTS TO SYRIA......................................................................... 153 D. THE SECRETARIAT’S RESPONSE TO ALLEGATIONS OF OIL SMUGGLING............ 160 E. CONCLUSION..................................................................................................... 162 CHAPTER 5 – THE 38TH FLOOR ............................................................................. 165 I. INTRODUCTION................................................................................................ 165 II. RELUCTANCE TO RECOGNIZE RESPONSIBILITY FOR OIP............... 169 III. LACK OF FULL DISCLOSURE OF REPORTS OF PROGRAMME VIOLATIONS TO THE SECURITY COUNCIL AND THE 661 COMMITTEE............................................................................ 174 IV. FAILURE TO CONFRONT IRAQ WITH EVIDENCE OF MANIPULATION OF THE PROGRAMME ............................................ 177 V. THE DEPUTY SECRETARY-GENERAL’S FAILURE TO SUPERVISE .................................................................................................. 179 VI. RESPONSES TO ADVERSE FINDINGS......................................................... 181 VII. CONCLUSION .................................................................................................... 184 CHAPTER 6 – THE SECRETARIAT: FINDINGS AND CONCLUSIONS.......... 185 I. FINDINGS AND CONCLUSIONS.................................................................... 185 II. RESPONSES FROM THE 38TH FLOOR ......................................................... 187 CHAPTER 7 – THE SELECTION OF COTECNA INSPECTION S.A................. 195 I. INTRODUCTION AND SUMMARY................................................................ 195 II. SUMMARY OF THE SECOND INTERIM REPORT.................................... 197 III. “MY PEOPLE IN NEW YORK”—EFFORTS OF KOJO ANNAN TO ASSIST COTECNA TO WIN THE CONTRACT .................................... 201 iii INDEPENDENT INQUIRY COMMITTEE INTO THE UNITED NATIONS OIL-FOR-FOOD PROGRAMME MANAGEMENT OF THE OIL-FOR-FOOD PROGRAMME VOLUME III - TABLE OF CONTENTS IV. NEW EVIDENCE CONCERNING WHETHER THE SECRETARY-GENERAL HAD KNOWLEDGE OF COTECNA’S CONTRACT BID IN 1998.......................................................... 220 A. KOJO ANNAN PHONE CALLS TO THE SECRETARY-GENERAL ............................ 221 B. THE MICHAEL WILSON MEMORANDUM OF DECEMBER 4, 1998 ....................... 222 V. KOJO ANNAN’S PURCHASE OF A CAR IN THE NAME OF THE
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