Dr. Saman Shali

Appointing ambassadors is critical to Iraq's foreign policy and international engagement. As a country navigating complex political, security, and economic challenges since 2003, Iraq's diplomatic corps plays a central role in shaping its relationships abroad and representing its interests on the global stage. While the appointment of ambassadors can bring numerous benefits, it also presents several challenges, especially when internal political dynamics and quota systems influence appointments. This essay explores the positive and negative effects of appointing ambassadors in Iraq.

The law appointing ambassadors to the Ministry of Foreign Affairs includes specific controls and standards. The ministry selects 75% of its employees based on the following job hierarchy:

The Ministry of Foreign Affairs law appointing ambassadors includes specific controls and standards.

1. Attaché

2. Third Secretary

3. Second Secretary

4. First Secretary

5. Advisor

6. Minister Plenipotentiary

7. Ambassador

Ambassadors are selected from among ministers, plenipotentiaries, and advisors, considering the various components (Shiites, Sunnis, Kurds, Turkmen, Christians, etc.) in the appointments. Political parties appoint the remaining 25%.

This percentage has changed today to 50% for the ministry and 50% for the political parties due to pressure from these parties, taking into account the components and according to the number of seats in the Iraqi parliament. One ambassador is allocated for every 10 seats. Small parties may unite to form a 10-seat bloc, obtain one ambassador, and agree on which party will nominate the ambassador.

Two batches of ambassadors were appointed in 2004 and 2009. Today, according to the Ministry of Foreign Affairs plan, 80 ambassadors are expected to be appointed as a third batch if it remains unchanged before the next elections. This change is all the more significant given that some ambassadors have reached the legal retirement age of 60 and 65 for those who have been politically dismissed. The Prime Minister has the authority to extend the service of qualified ambassadors for three years after retirement, with the possibility of further extensions. Iraq cannot train qualified ambassadors in such a short period. It must, therefore, rely on qualified ambassadors with extensive experience in the diplomatic corps.   

Positive Effects

One of the primary benefits of appointing ambassadors is strengthening Iraq's diplomatic relationships. Ambassadors serve as the official representatives of the Iraqi government, promoting political cooperation, trade agreements, and cultural exchange with host countries. These relationships are essential for securing international support in counterterrorism, economic development, and reconstruction.

Furthermore, ambassadors play a key role in attracting foreign investment. With its rich natural resources and strategic location, Iraq has the potential to draw significant economic interest. Skilled ambassadors can promote Iraq as a stable and profitable destination for international investors, boosting the country's economy and creating job opportunities.

Ambassadors also help coordinate humanitarian aid and international assistance. Post-conflict Iraq continues to rely on foreign aid to rebuild infrastructure and support displaced populations. Diplomatic missions are often instrumental in securing such assistance through direct negotiations with donor countries and international organizations.

Also, the appointment of ambassadors can contribute to Iraq's soft power. Through educational exchanges, cultural diplomacy, and public engagement, ambassadors can help reshape global perceptions of Iraq, moving away from images of conflict and instability toward those of culture, heritage, and resilience.

In addition to the following points:

1. Inclusive Representation

    Ensures that all major ethnic and sectarian groups (Shia, Sunni, Kurds, Turkmen, Christians, etc.) feel represented in Iraq's foreign policy and diplomacy.

2. Political Stability

    Quotas can help reduce tensions between factions by giving each group a stake in government institutions, including embassies.

3. Maintaining Power Balance

     It can prevent domination by one political or ethnic group over Iraq's foreign representation, which could lead to internal unrest or claims of marginalization.

4. Stronger Ties with Specific Regions

   Ambassadors from specific backgrounds may better connect with host countries with cultural or religious ties (e.g., a Sunni ambassador in an Arab Gulf country, a Shiite ambassador in a Shiite country, and a Kurdish ambassador in Europe).

Negative Effects

Despite these advantages, Iraq's ambassadorial appointment process has flaws. One of the most significant concerns is the politicization of appointments. Ambassadorial positions are often awarded based on political affiliations or sectarian quotas rather than merit. This practice is rooted in Iraq's post-2003 power-sharing system known as muhasasa (dividing positions among themselves). In many cases, ambassadorial positions are assigned based on merit, which is fine if competency is taken into account, but often results in appointing individuals who lack the necessary qualifications, experience, or diplomatic training.

We must not forget that appointing ambassadors not qualified in the language skills, strategic thinking, or knowledge of international relations necessary to deal with complex diplomatic environments will negatively affect Iraqi diplomacy.

Such appointments can undermine the effectiveness of Iraq's foreign policy. Unqualified ambassadors may struggle to represent the country's interests or fail to build strong relationships with foreign governments. This ineffectiveness can result in missed cooperation, investment, and international support opportunities.

Additionally, quota-based appointments may lead to inconsistent foreign policy. When ambassadors represent different political factions with divergent agendas, Iraq's diplomatic messages can appear fragmented or contradictory. This fragmentation weakens the country's international standing and reduces the credibility of its positions on key issues.

Security is another concern. In volatile environments, the presence of ambassadors and embassies can become targets for terrorism or political violence. This concern has been evident in attacks on diplomatic missions in Baghdad and other cities. The risk increases when diplomatic posts are seen as extensions of foreign powers or domestic political parties rather than professional state institutions.

Conclusion

While the appointment of ambassadors in Iraq carries many potential benefits, including enhanced diplomatic relations, economic growth, and international support, it poses serious challenges when driven by political quotas or sectarian interests that are far from efficient. For Iraq to fully benefit from its diplomatic engagements, it must prioritize merit-based appointments, strengthen the professionalism of its foreign service, and ensure that its ambassadors represent the unified interests of the state rather than narrow political agendas. Only then can Iraq achieve a more coherent, credible, and compelling presence on the international stage.

In conclusion, returning to 75% representation in the ministry is the most positive way to appoint ambassadors to represent Iraq's foreign policy. The Iraqi parliament must respect the laws of the Ministry of Foreign Affairs, not interfere in its work, and avoid quotas in appointing ambassadors.

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Saman Shali has a Ph.D. in Science (1981) from the University of Sussex. Dr. Shali worked as an Assistant Researcher and Assistant Professor at the University of Sussex, King Saud University, and Pennsylvania State University. He is also a senior fellow at the Mediterranean Institute for Regional Studies.