Iraq: Economy

Historically, Iraq's economy was characterized by heavy dependence on oil exports and emphasis on development through central planning. Prior to the outbreak of the war with Iran in September 1980, Iraq's economic prospects were bright. Oil production had reached a level of 3.5 million barrels per day, and oil revenues were $21 billion in 1979 and $27 billion in 1980. At the outbreak of the war, Iraq had amassed an estimated $35 billion in foreign exchange reserves.

The Iran-Iraq war depleted Iraq's foreign exchange reserves, devastated its economy, and left the country saddled with foreign debt of more than $40 billion. However, after hostilities ceased in August 1988, oil exports gradually began to increase, with the construction of new pipelines and the restoration of damaged facilities. But Iraq's invasion of Kuwait in August 1990, subsequent international sanctions, damage from military action by an international coalition in January and February of 1991, and neglect of infrastructure devastated Iraq’s economy again. Government policies that diverted government income to key supporters of the regime and sustained a large military and internal-security force further impaired the economy and left the typical Iraqi facing desperate hardships.

The UN created the Oil-for-Food (OFF) program in April 1995 (UN Security Council Resolution 986) as a temporary measure to provide for the humanitarian needs of the Iraqi people because of the effect of the continued sanctions regime. The OFF authorized nations to allow the importation of petroleum and petroleum products from Iraq worth $1 billion dollars (U.S.) every 90 days. The Security Council directed the Secretary General to create an escrow account that would hold the proceeds from the sales of oil, and allow Iraq to purchase food, medical supplies, and other goods for essential civilian needs. Although GDP fell in 2001 and 2002, largely as a result of the global economic slowdown and lower oil prices, per capita food imports increased and medical supplies and health care services improved. However, the military action of the U.S.-led coalition from March to April 2003 disrupted the central economic administrative structure. Since then, the rebuilding and enhancement of oil and utilities infrastructure and other production capacities has proceeded steadily, despite attacks on key economic facilities and internal security incidents. Iraq is now making progress toward establishing the laws and institutions needed to make and implement economic policy.

Iraq's economy remains dominated by the oil sector, which currently provides about 90% of foreign exchange earnings. Oil production currently averages about 2.5 million barrels per day, of which about 2.0 million barrels per day are exported. Following two successful oil bid rounds in 2009, the Iraqi Government has plans to dramatically increase production and export capacity over the next decade. The government must overcome some significant financial, technical, and infrastructure constraints to achieve stated goals, however.

Iraq is seeking to pass and implement laws to strengthen the economy, including a hydrocarbon law that encourages development of the oil and gas sector and a revenue sharing law that equitably divides oil and gas revenues among the central government, the provinces, and the Kurdistan Regional Government (KRG). Implementing structural reforms, such as bank restructuring and private sector development, while simultaneously reducing corruption, will be key to Iraq's economic growth.

Foreign assistance has been an integral component of Iraq's reconstruction efforts since 2003. At a donors’ conference in Madrid in October 2003, more than $33 billion was pledged to assist in the reconstruction of Iraq. Following that conference, the UN and the World Bank launched the International Reconstruction Fund Facility for Iraq (IRFFI) to administer and disburse about $1.7 billion of those funds. The rest of the assistance is being disbursed bilaterally. Since 2003, international donors have pledged about $18 billion in financial and technical assistance, soft loans or potential loan facilities, and trade finance. International donors have exceeded their combined pledges for grants and technical assistance, totaling about $6.5 billion, by more than $1.3 billion. Total soft loan pledges amount to about $12.8 billion, of which $6.5 billion has been committed. Japan is the leading soft loan contributor, having committed nearly $3.3 billion to projects around Iraq. New programs approved by the International Monetary Fund (IMF) and World Bank will substantially close the gap between soft-loan pledges and commitments.

In February 2010, the IMF and World Bank approved $3.6 billion and $250 million of support to Iraq, respectively. Both programs are focused on helping the Iraqi Government maintain macroeconomic stability and mitigate Iraq’s vulnerability to external shocks due to volatility in global oil markets. The Iraqi Government has worked closely with both institutions since 2003, including the December 2008 completion of an IMF Stand-By Arrangement (SBA), after which Iraq received the balance of the Paris Club’s 80% debt reduction.

U.S. foreign assistance to Iraq since 2003 has totaled $58 billion. The bulk of this assistance has gone toward reconstruction and security. The focus of U.S. foreign assistance in recent years has shifted from bricks-and-mortar reconstruction to technical assistance and capacity building. The U.S. Government is working with the Iraqi Government to build political, economic, rule of law, and civil society institutions throughout Iraq.

Agriculture
Agriculture is Iraq’s second-largest economic sector (after the oil sector), producing about 12% of GDP, and the second-largest source of jobs (after the public sector), employing at least 15% of the labor force. However, despite its abundant land and water resources, Iraq is a net food importer. Obstacles to agricultural development, most of which existed prior to the removal of the Ba'ath regime in 2003, include government policies and subsidies that distort the market and undermine productivity and competition; outdated technology in plant and animal genetics, fertilizers, irrigation and drainage systems, and farm equipment; inadequate and unstable electricity; degradation of irrigation-management systems; insufficient credit and private capital; and inadequate market information and networks. In addition, the policy of the Ba'ath regime to destroy the "Marsh Arab" culture by draining the southern marshes and introducing irrigated farming to the region destroyed a natural food-producing area, while concentration of salts and minerals in the soil due to the draining left the land unsuitable for agriculture. Assistance from the U.S. Agency for International Development (USAID), the U.S. Department of Agriculture (USDA), and other international partners since 2003 has helped Iraq begin the necessary improvements. Current U.S. efforts are focused primarily on helping Iraq transition to a private sector-driven agricultural system.

Trade
The United Nations imposed economic sanctions on Iraq after it invaded Kuwait in 1990. Under the Oil-for-Food program, Iraq was allowed to export oil and use the proceeds to purchase goods for essential civilian needs, including food, medicine, and infrastructure-repair parts. With the lifting of UN sanctions after the Ba'ath regime was removed in 2003, Iraq is gradually resuming trade relations with the international community, including the United States. The United States designated Iraq as a beneficiary developing country under the Generalized System of Preferences (GSP) program in September 2004. Iraq was granted observer status at the World Trade Organization (WTO) in February 2004, and began its WTO accession process in December 2004. Iraq has participated in two Working Party meetings as part of the accession process, one on May 25, 2007, and the other on April 2, 2008. During this long-term process, Iraq must align its trade regime with the rules-based, multilateral international trade system. Through USAID technical assistance, the United States is continuing to support Iraq’s accession to the WTO. Completion of the requirements for WTO membership will help Iraq establish a proven framework for fostering a more stable and transparent economy that will encourage both domestic and foreign investment.

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