Coalition Provisional Authority - History of The CPA

History of The CPA

The Office for Reconstruction and Humanitarian Assistance (ORHA) was established on 20 January 2003 by the United States Government two months before the 2003 invasion of Iraq. It was intended to act as a caretaker administration in Iraq until the creation of a democratically elected civilian government.

Retired United States Army Lieutenant General Jay Garner was appointed as the Director of ORHA, along with three deputites, including British Major-General Tim Cross, in 2003. Upon the dissolution of ORHA and the creation of the CPA, he then became the first chief executive of the CPA. Due to his past military experiences in Iraq during Operation Desert Storm in 1991 and his reconstruction efforts in northern Iraq during Operation Provide Comfort, Garner's credentials and close ties to the U.S. Secretary of Defense Donald Rumsfeld made him an obvious choice for the task. His term, however, lasted only from 21 April 2003, until he was replaced abruptly less than a month later by L. Paul Bremer on 11 May 2003.

Garner's swift dismissal from his post by U.S. authorities came as a surprise to many within the CPA. In an interview with the BBC program Newsnight, Garner publicly stated that his preference was to put the Iraqi people in charge as soon as possible and to do it with some form of elections. Privately, there was intense pressure from the U.S. Government to begin a process of removing members of the Arab Socialist Ba'ath Party from their positions within the Iraqi government and military. Garner's refusal to implement this "de-Ba'athification" of Iraqi society as a matter of public policy infuriated several senior members of the U.S. Government, and led directly to his dismissal.

Upon assuming the post of chief executive of the CPA in May 2003, L. Paul Bremer also assumed the title of U.S. Presidential Envoy and Administrator in Iraq. He was frequently called Ambassador by numerous media organizations and the White House because it was the highest government rank he had achieved (Ambassador to Netherlands). However, Bremer was not ambassador to Iraq, and there was no U.S. diplomatic mission in Iraq at that time.

The CPA was created and funded as a division of the United States Department of Defense, and as Administrator, Bremer reported directly to the Secretary of Defense. Although troops from several of the coalition countries were present in Iraq at this time, the U.S. Central Command (USCENTCOM) was the primary military apparatus charged with providing direct combat support to the CPA to enforce its authority during the occupation of Iraq.

While many of Saddam Hussein's ornate palaces were looted in the days immediately following the invasion, most of the physical structures themselves survived, relatively intact. It is in these numerous palaces situated throughout the country that the CPA chose to set up office in order to govern. Several of these palaces were retained by the U.S. Government even after the transition of power back to the Iraqi people. The administration was centred in a district of Baghdad, known as the Green Zone, which eventually became a highly secure walled-off enclave.

The CPA was also responsible for administering the Development Fund for Iraq during the year following the invasion. This fund superseded the earlier UN oil-for-food program, and provided funding for Iraq's wheat purchase program, the currency exchange program, the electricity and oil infrastructure programs, equipment for Iraq's security forces, Iraqi civil service salaries, and the operations of the various government ministries.

The first act of the CPA under Bremer was to issue order of de-Ba'athification of Iraqi society. On 23 May, CPA Order Number 2 formally disbanded the Iraqi army On 22 July 2003, the CPA formed the Iraqi Governing Council and appointed its members. The Council membership consisted largely of Iraqi expatriates who had previously fled the country during the rule of Saddam Hussein and also with many outspoken dissidents who had been persecuted by the former regime.

Though still subordinate to the CPA, the Iraqi Governing Council had several key responsibilities of its own. Its duties included appointing representatives to the United Nations, appointing interim ministers to Iraq's vacant cabinet positions, and drafting a temporary constitution known as the Transitional Administrative Law (TAL), which would be used to govern Iraq until a permanent constitution could be written and approved by the general electorate.

In the late afternoon of 14 December 2003, the CPA held a press conference at the Iraqi Forum convention center within Baghdad's Green Zone to announce that former President of Iraq Saddam Hussein had been taken into custody the previous night from a foxhole in a town near Saddam's home town of Tikrit, Iraq. Present at the announcement was Lieutenant General Ricardo Sanchez of the U.S. Army, Administrator Bremer, members of the British and American intelligence agencies, several members of the Iraqi Governing Council, and a large room full of journalists representing news organizations from around the world.

In order to defeat possible insurgent planning, the CPA transferred power to the newly appointed Iraqi Interim Government at 10:26 AM local time on 28 June 2004. With the CPA disbanded, Bremer left Iraq that same day.

The United States hoped that Iraq could be reconstructed and democratized in much the same way as Japan and Germany were after the Second World War, using them as "examples or even models of successful military occupations."