Chapter 3 - Knowledge of the treatment of Iraqi detainees
3.1
The committee in this chapter seeks to ascertain
whether any knowledge of, or concerns regarding, the treatment of Iraqi
detainees was provided to Australian Government departments, agencies and ministers
and, if so, the actions that followed from the provision of this information. The
committee looks at:
- the policy that is intended to inform Australian
personnel in Iraq about their conduct toward Iraqi detainees;
- the key documents which enunciate the
fundamental principles governing the handling of prisoners—the Geneva Convention
and the CDF's directive;
- the evidence presented to the committee about
the provision of information on the treatment of Iraqi detainees to Australian
government departments, agencies and ministers; and
- the actions taken following such reporting.
Australian policy toward the treatment
of detainees in relation
to the war in Iraq
3.2
From the very beginning of Australia's
engagement in Iraq
in March 2003, many people and organisations sought clarification on Australia's
duties and obligations toward Iraqi prisoners. On 21 March 2003, Brigadier Mike Hannan told a media
gathering that Australia
had:
...a very robust system which ensures that...our Australian rules of
engagement and orders to our troops required the compliance with all of our
international conventions, with all of our international agreements with
Australian law and with international law and the law of armed conflict.[41]
3.3
This was one of the first of numerous assurances given
by senior ADF officers that prisoners of war would be treated in accordance
with international protocols.[42]
3.4
The following section discusses two documents that set
down the principles under which Australian personnel are to treat prisoners of
war.
The Geneva Convention
3.5
The Geneva Convention is a collection of laws of war
that have been assembled piecemeal over many years and which continues to be
developed. Convention III and IV apply directly to the treatment of prisoners
of war and the protection of civilian prisoners in time of war. The overriding
principle for both conventions is that such persons 'shall in all circumstances
be treated humanely, without any adverse distinction founded on race, colour,
religion, or faith, birth or wealth, or any other similar criteria'. The
conventions also prohibit certain acts including:
- violence to life and person, in particular
murder of all kinds, mutilation, cruel treatment and torture; and
- outrages upon personal dignity, in particular,
humiliating and degrading treatment.
3.6
Australia
is a signatory to both conventions. Any policy statement, code of conduct or
rules of engagement must be consistent with the overarching principles
contained in this document.
CDF's directive regarding the
policy governing the handling of captives
3.7
Australia
also has a memorandum of understanding with the US
on the treatment of detainees that was initiated in 2002 at the time of the war
in Afghanistan.
General Peter Cosgrove
explained that it was necessary to have this arrangement to cater for the
possibility that Australian special forces operating in Afghanistan
might need 'to detain people in a formal sense: that is to detain them for a
period of time'. According to General Cosgrove:
The arrangement was reached through an exchange of letters
between Admiral Barrie and General
Franks of the Central Command. They stated
the position that if the United States
personnel were present with Australian personnel, the United
States military person could effect the
capture, assisted by the Australians, and that would mean that the person thus
captured was in the custody of the United States.[43]
3.8
In June 2002, following consideration of advice from
the Attorney–General’s Department, the then CDF, with a view to ensuring that
the ADF’s conduct was consistent with Australia’s legal obligations, issued an
ADF policy regarding the handling of captives taken in Afghanistan. The policy
was that the United States
was to assume responsibility for captives taken during combined Australia–United
States operations. The ADF would retain custody of those captives taken during
separate ADF operations, thereby allowing the government to make decisions as
to the future handling of those captives.[44]
3.9
The committee understands that there was no separate or
new directive issued with regard to the engagement of Australian personnel in Iraq.
Senator Hill explained:
Operation Slipper continued and many of the forces were dually
assigned, if that is the right term, and that covers the ships. In relation to
the special forces, under the next operation they continued to operate on the
same basis. As far as I have been able to ascertain there was no new directive
given. There was a continuation of the implementation of the arrangement that
had been reached the previous year with the United
States.[45]
3.10
There can be no doubt that Australians serving in Iraq
are bound in their treatment towards captives by the Geneva Convention and by
the CDF's directive. Both documents make clear that captives must be treated
humanely and secondly that the US
was to assume responsibility for captives taken during combined Australia–US
operations.
3.11
The following section traces the reporting procedures
followed by Australian personnel in Iraq on the treatment of Iraqi
prisoners—whether they knew about alleged abuses, whether they reported them,
and if so, to whom, and finally what action, if any, was taken.
Situation reports (sit reps)
3.12
The evidence before this committee suggests that
Australian officials first became aware of concerns about the treatment of Iraqi
detainees through information conveyed in situation reports provided by a legal
officer, Major O'Kane,
stationed in Baghdad. In one report
dated 28 November 2003, he
recorded that he had reviewed reports by the International Committee
for the Red Cross (ICRC) on detention facilities and was preparing a position
paper.[46]
3.13
A later sit rep, dated 4 December 2003, noted that HQ had provided vehicle
support for Major O'Kane to
visit Abu Ghraib
jail. This report indicated that Major O'Kane
had attended the prison to address issues of mistreatment allegations and had
drafted a reply to the October ICRC report.[47]
3.14
On 15 February
2004, Lieutenant Colonel Muggleton
recorded in a sit rep that the ICRC report had been given to Ambassador
Paul Bremer
and that it was highly critical of the treatment of prisoners. He also noted
that US authorities were investigating the abuse allegations, including the
detention system in Iraq.[48]
3.15
Although produced in February 2004, the ICRC report referred
to by Lieutenant Colonel Muggleton
was not made public until May 2004. It should be noted that the ICRC keeps its
reports strictly confidential. The report was published in May without the ICRC's
consent and in contravention of an established and well recognised practice.[49] The ICRC made plain that:
...the ICRC fulfils its mandate to protect persons detained in
armed conflict by addressing problems and violations through private approaches
to the detaining authorities and their superiors. This long–standing practice
allows us to act in a decisive manner, while ensuring that our delegates have
continued access to detainees around the world.[50]
3.16
The ICRC report summarised a series of working papers
handed over to coalition forces and was based on visits to various facilities
between March and November 2003. The sit reps of 28 November and 4 December 2003 appear to refer to
the October working paper. The February report described violations of
International Humanitarian Law by the Coalition Forces in Iraq.
It found that the main places of internment where mistreatment allegedly took
place included battle group unit stations; the military intelligence sections
of Camp Cropper
and Abu Ghraib Correctional Facility and other named places.[51]
3.17
The situation reports from Major O'Kane
and Lieutenant Colonel Muggleton
that contained references to either the ICRC working papers or the February report
were provided to a number of addressees in Canberra,
to Headquarters Joint Task Force 633 and to the Australian Representative
Office (ARO) in Baghdad. According
to Air Commodore Harvey, they were also 'onforwarded to other government
departments, including Attorney–General's and DFAT, because they were obviously
interested in monitoring what was happening within the Coalition Provisional
Authority'[52]
3.18
The committee has not been provided with copies of
these sit reps and relies on the evidence of departmental officials to piece
together their contents and their distribution. Based on the evidence, it would
seem that officials within the Department of Defence did not act upon these
reports which indicated that Iraqi detainees may have been mistreated.
3.19
DFAT, however, sought clarification. Mr John Quinn,
Assistant Secretary, Iraq Task Force, told the Committee
that the ICRC report about the treatment of detainees in Iraq came to DFAT's
attention on 15 February 2004 when an Australian legal officer made reference
to it in a situation report numbered 13 [Lieutenant Colonel Muggleton's sit
rep]. Mr Quinn
confirmed, as noted above, that the sit rep stated that the ICRC report,
described as 'detailed, comprehensive and highly critical', had been given to Ambassador
Bremer.[53]
According to Mr Quinn,
the sit rep also commented in a 'broad brush way' about US and Australian
approaches to detention issues.
3.20
He explained to the committee that he was concerned
about the report and put the issue before the legal watch group at a meeting on
26 February 2004. His
intention was 'to double check whether there were issues of concern'.[54] He told the committee:
I knew that we were not detaining prisoners and had no role in
detention. I had some concerns in relation to the Iraq
survey group, so I said, 'Are there any issues here in terms of process we need
to be aware of?' A message went through the military chain and through the ARO
to check in terms of the Iraq Survey Group whether there were any particular
issues that needed to be raised with us. The reply came back: 'No, our
Australian colleagues in the ISG are not involved in interrogation or detention
processes. There is no issue that we need to be concerned about'. So I guess in
my role as sweeper I just raised the issue. I raised a query, it was responded
to and my assumption was that the ICRC process was moving forward in the usual
way.[55]
3.21
Based on this information, Mr
Quinn assumed that the ICRC was 'doing its
job'. He was under the impression that the matter was not discussed again and
that his colleagues who saw the sit reps took the same judgment.[56]
3.22
Mr Quinn
also referred to a sit rep dated 21
March 2004 which contained a 'very short reference to the ICRC
making negative comments about Camp Cropper'.
He noted that no detail was provided but again there was 'affirmation that no
Australians were involved in any aspects of breaches of international
humanitarian law'. He concluded, 'I guess that is a resonance of the early
inquiry that I initiated from this end about whether we had any role in
relation to the detainees at Camp Cropper'.[57]
3.23
During this period, Mr
Barton had been in Iraq
[8 December 2003 to 23 March 2004] and had concerns
about the treatment of Iraqi detainees. He told the committee that early in
2004, during the regular briefings they had at Camp
Slayer, he became perturbed by some
photographs he had seen of prisoners taken during the induction process. He
stated that 'the nature of the bruising and so on about the face seemed to be
more than you would get if you just resisted arrest'.[58] He explained, however, that:
A few of us were concerned, but at this stage, of course, we were
not aware of anything that was going on at Abu
Ghraib. We just thought that these were perhaps
some isolated incidents or that we had not interpreted the evidence correctly.[59]
3.24
He also told the committee that:
...some things concerned me—the size and design of cells, the use
of privilege to gain cooperation and the extensive use of solitary confinement.
I made these concerns known at the time to the commandant of the prison. What
was of greater concern to me was the way that some, although not all, prisoners
were treated prior to their arrival at Cropper. I saw photographic evidence
that I believe indicates that some were beaten shortly after their arrest,
possibly as a softening–up process. I also became aware much later of a death
in custody that looked suspicious.[60]
3.25
He had a discussion about prisoners with the Australian
Representative in Baghdad during a
dinner party on 2 March 2004.
It was also attended by the then head of the Iraq Task Force, Mr
Quinn, and an ISG colleague, Dr
Gee, who resigned at about the same time as Mr
Barton. He maintained that during the evening
they discussed the issue of the continuing detention of certain prisoners at Camp
Cropper.[61]
3.26
When Mr Barton
returned to Australia
from Iraq in
late March he met various officials. On 31
March 2004, he had a meeting with Ms
Rowling, First Assistant Secretary,
International Policy, and an Air Force Group Captain arising out of his letter
of resignation.[62] He also talked to a
senior Defence official and mentioned his general concerns about prisoner
mistreatment.[63] According to Mr
Barton, he did not give details about his
concerns during these consultations but did make a recommendation that Australia
'should not be involved in the interview process'.[64] He stressed that he only mentioned his
concern and stated further 'I do regret now not pushing it harder then. Having
known what I knew, I should have made more of a case of it, but I thought 'well,
I've done my job...'[65]
3.27
According to the Secretary of the Department of Defence,
Mr Ric Smith,
there was no follow–up to matters raised at the meeting with Mr
Barton for three reasons:
- Mr Barton had only mentioned the matter of Iraqi
detainees and he spoke about conditions and mistreatment but not about abuse;
- the meeting was about 'something else rather
bigger and more important—the future directions of the ISG'; and
- the main point being made by Mr Barton was,
given his concerns about conditions and mistreatment, Australia should not be
involved with the taking of detainees but Australia was not taking detainees
and hence no action was necessary.[66]
3.28
When reports of abuse of Iraqi detainees became public
in early May 2004, including the publication of the February ICRC report, the
Department of Defence provided a brief to the Minister for Defence on ADF
personnel and the taking of prisoners. The Minister requested that ADF
personnel who could provide information on the matters dealing with the
detainment of Iraqi prisoners be interviewed. On the morning of 11 May, the
Minister received a second brief which informed him that legal officers in the Coalition
Provisional Authority (CPA) had known about the February Report
of the ICRC.[67]
3.29
That day the Minister's office sought answers to a
series of questions on prisons, prisoners, the ADF's role in detention and
what, if any, obligations it had.[68] A
week later, on 17 May, the Minister's office requested that all ADF personnel
who had contact with the prison be listed by name and be interviewed by the
Defence Legal Service.
May 2004 survey
3.30
The Department of Defence set about identifying and
contacting all relevant personnel and forwarding a pro forma questionnaire to
them.[69] The survey was primarily
directed towards identifying people who had contact with prisoners of war and establishing
whether they had seen abuse rather than whether they had seen ICRC reports.[70]
3.31
A list of 302 Australian personnel who might have had
some exposure to Iraqi prisoners was refined down to 60 and then to 15. The
final 15 were contacted by a small team of senior lawyers who asked targeted
questions relating to dealings with prisoners and visits to prisoners.[71] A third country deployment
questionnaire went to 106 third country deployment people, that is personnel
who were deployed with third countries, the US
and the UK. Of
those 106 personnel, 23 were sent the survey.[72]
3.32
On 25 May 2004,
Mr Barton
filled out the questionnaire.[73] In
answer to whether he had visited any coalition PW or detainee detention
centres, holding facilities, prisons or interrogation cells he wrote that he
had two visits only as part of his duties with the ISG:
- 30 December 2003, to interview a former Iraqi
senior government official; and
- 10 January 2004 to conduct a familiarisation
inspection of Camp Cropper (Secure Interrogation Center for High Value
Detainees at BIAP).[74]
As to the question whether he had heard or observed any
mistreatment of Iraqi PWs or civilian detainees whilst he was in Middle East
Area of Operations (MEAO), he responded:
I did not observe any mistreatment of detainees at Camp
Cropper. However I was concerned
about the size of the cells many detainees were kept in (approx 2m x 1.5m), the
amount of exercise permitted (Two half–hour periods per day) and the solitary confinement
of some detainees. I expressed these concerns to the officer in charge of
the facility.
From a British colleague at the ISG I heard of the mistreatment
of the detainees during their arrest and for the following day or so. I also
saw mugshots of two detainees who were photographed shortly after their arrest
and who clearly had abrasions about the face. When the officer in charge of the
detention centre was asked why, he responded that these injuries were incurred
during the detainees' resistance to arrest.
3.33
In reply to the question regarding what he did and who,
if anyone, did he report to, he stated:
I expressed my concerns about the possible abuse of detainees to
Australian government officials on my return to Australia
at the end of March 2004 and recommended that Australia
should not be involved in the interview process.
3.34
Finally in answer to whether he had any other
information he considered relevant, Mr Barton
wrote:
During my time with the ISG I was aware of two Red Cross
inspections of Camp Cropper,
in mid–January and early February 2004. The visits were only about two weeks
apart, and the head of the detention centre explained that that was because the
Red Cross was unhappy about some aspects of the camp. Their concerns included
the amount of exercise allowed detainees, and the practice of giving rewards (eg
phone contact with families, reading or writing material and small luxuries),
in return for information. The second visit was to see if these concerns had
been addressed. I do not know whether the Red Cross was satisfied.[75]
3.35
In Mr Barton's view, he was reporting suspected abuse
and told the committee that he never said that he saw it with his own eyes but
rather 'saw evidence that strongly pointed to this'.[76]
DFAT's activities following the
disclosure of abuse of Iraqi detainees
3.36
At this time, DFAT was aware that ADF advisers were
seeking information about the role of staff in relation to detainees, but was
not involved in the survey.[77] When
asked whether DFAT had taken any due diligence action after the 10 or 11 May 2004, Mr
Quinn explained:
...in a sense, all that we knew was what came through the sit rep
channel in terms of the information. I started to look in terms of previous
activity and I mentioned the February discussion that I initiated in the legal
watch group. So we did some basic housekeeping but we did not see ourselves as
a party principal and we felt, given the constraints of the ICRC, we had acted
appropriately in not pursuing the ICRC confidential report [see explanation in
para 3.14]. We were not a party to that process—this is the February report—and
we had no knowledge of the October report or working paper, at all. We did some
modest due diligence but I guess we were not engaged in intensive activity at
that point.[78]
3.37
He mentioned, however, that he brought the matter of
the treatment of Iraqi detainees back to the legal watch group on 17 May:
We had a discussion about what more could be done in terms of
what was appropriate follow-up action. As you know, the government had made
clear its concerns in relation to this issue... Defence was doing its due
diligence. We thought it might be appropriate for one of our colleagues to go
to the pre–departure briefing for the AFP colleagues deploying to Iraq to make
sure that human rights issues were covered off in that particular context. We
reissued the code of conduct we had given to our civilian advisers when they
deployed, which is based on the Public Service code of conduct and it includes
the obligation to report any activity that seems to be illegal. We had no
knowledge of any reason why the civilian advisers would see anything but we
wanted to remind them they had obligations. That was done. So we did a number
of housekeeping things to follow up but that was at my initiative. There was no
directive for us to do that.[79]
3.38
Mr Quinn
made clear that the main channel for reporting on the treatment of detainees
was through the sit reps from the ADF legal colleague in the CPA. He assured
the committee that DFAT had checked their cable traffic and also asked the post
to confirm their knowledge of these matters. He concluded that:
they have confirmed that the channel of reporting was the sit
reps. I think I explained earlier they had no approaches from the ICRC on the
subject and there is no separate channel of reporting on the subject that we
are aware of.[80]
3.39
He also informed the committee that DFAT try to talk to
colleagues who have worked at the CPA on their return to Australia.
He explained, however, that their strike rate is not 100 per cent—that they 'do
miss some colleagues who return but we do try to talk to colleagues on return
if we can'.[81]
Joint statement on the allegations of abuse of Iraqi detainees
3.40
On 28 May 2004,
following the ADF survey, the former Chief of the Defence Force and the
Secretary for Defence issued a joint statement on the allegations of abuse of
Iraqi detainees. It announced that the ADF had undertaken a survey of ADF and
civilian personnel in Iraq
whose duties may have involved contact with Iraqi prisoners or detainees. The
results of the survey showed that:
- no defence personnel were aware of the
allegations of abuse or serious mistreatment before the public report of the US
investigation in January 2004;
- none of those surveyed was aware of abuse or
serious mistreatment of Iraqi prisoners or detainees, of the nature of recent
allegations, during their deployment;
- there were no reports about the abuse or serious
mistreatment of prisoners or detainees of the nature of recent allegations
made, either through the chain of command or informally;
- ADF officers working in the coalition
headquarters and the CPA were aware of the October 2003 ICRC report on detainee
treatment;
- Defence investigations to date show there is no
record of the existence of the October 2003 report being communicated back to
Defence in Australia; and
- Australian officers did report on the existence
of the ICRC February 2004 report and the process being implemented by the
detaining powers to address its concerns. Australia received neither report.[82]
3.41
On 31 May, senior ADF officers and the Minister were
questioned at length during estimates hearings about this statement. In
particular, they were asked about the ICRC October working paper. It should be
noted that the Minister declined a request to make available Major
O'Kane, who mentioned the ICRC paper in his
sit reps, to give evidence before estimates hearings. He did so on the grounds
that the hearing 'is not designed to be an interrogation of relatively junior
military officers on an individual basis'.[83]
3.42
In reference to the ICRC reports, General Cosgrove told
the committee:
We certainly felt that there was a report; it kept getting
referred to. But I direct you to the paragraph which begins, 'Defence
investigations to date show there is no record of the existence of the October
2003 report being communicated back to Defence officials in Australia'.[84]
3.43
Defence officials, however, became aware that Major
O'Kane had brought back from Iraq
copies of the ICRC working paper and that it was in the possession of a Defence
official in Canberra. During
hearings on estimates the following week, Mr
Ric Smith corrected
the joint statement of 28 May. He told the Committee:
I want to say here that our statement of 28 May reflected the
best knowledge we had at that time—that is, on the afternoon of 28 May. We were
subsequently advised of the existence of two working papers prepared by the
ICRC in October and November and told that these working papers had been in the
possession of, first, an ADF officer and then another Defence official in Canberra
since February and May respectively. We remained unclear through the weekend
whether these papers were what has been called the October ICRC report referred
to earlier. We became clearer about this during Sunday. Had we known of the
existence and the contents of those working papers, any statement that we made
on 28 May would have reflected that knowledge. In particular, we would have
acknowledged our knowledge of the working papers and we would not have said
that no Defence personnel were aware of allegations of serious mistreatment.
Moreover, while it might have been Major O’Kane’s understanding
that the October working paper—or report, as we erroneously called it—raised
general concerns about detainees’ conditions and treatment, this is not an
understanding that we would have shared or endorsed. Having since seen the
working papers, we do acknowledge that the allegations they describe were allegations
of mistreatment, serious by any standard, although not apparently the serious
or criminal abuses that have subsequently been disclosed.[85]
3.44
It is clear that despite its determined efforts, the
ADF had failed to ascertain all the relevant facts about Australian personnel
and their knowledge of the mistreatment of Iraqi detainees. This meant that on
more than one occasion the then CDF mislead the public and the parliament on
the ICRC October working paper and caused the Secretary of Defence, under the
heavy glare of an estimates committee, to correct the record.
The June 2004 fact–finding team
3.45
Following the estimates hearing in May and June 2004, a
fact–finding team was commissioned on 2 June to undertake a thorough search of
all information relevant to the matter of Iraqi detainees. Mr
Pezzullo was appointed to lead the team in
the Australian Defence Organisation (ADO). It was to:
Gather all relevant facts and information concerning ADO
involvement in any manner whatsoever in relation to detainee issues arising out
of coalition activities in Iraq,
from the commencement of the post-conflict phase in May 2003.[86]
3.46
A team of 12 was taken off–line to work on the task but
were assisted by 'literally the entire department'.[87] Mr
Pezzullo explained some of the processes followed
by the team:
...we started from almost a zero base just to make sure that we
were not missing anything, so in many cases where we have rung or ascertained
further amplifying information from those who had responded to the May survey
there are not individual records of interview but we have updated the survey
database that was referred to in the previous estimates.[88]
3.47
Mr Pezzullo
interviewed Mr Barton
on 9 June.[89] They discussed the
meeting that Mr Barton
had had with government officials on his return from Iraq
on 31 March. Mr Pezzullo
stated that for completeness he wanted everyone's perspectives and had also consulted
others present at that meeting. He quoted from a military officer [an Air Force
Group Captain] who recalled the meeting [on 31 March] in the following words:
The meeting was with the senior officer [Ms
Rowling] in her office. The meeting was
focused on the work he had undertaken with the ISG, his reasons for leaving
early and his recommendations for the provision of further support to the ISG,
all of which were outlined in his letter of resignation to the first assistant
secretary. The detention issue was neither mentioned in the letter of
resignation nor raised as a major item at the meeting. Mr
Barton mentioned that, as part of the process
of gathering information, however the ISG was involved in interviews with
Iraqis. He said he had personal concerns about the conditions—for example, the
size of cells in which the detainees were held—and had heard from British
colleagues of mistreatment. For that reason and with no further detail he
recommended that Australia
not offer to become involved in the detention process. As it was our policy
position that we were not considering involvement in a detention process, his
recommendation was accepted and noted without further comment and the meeting
moved on to other issues.[90]
3.48
Mr Pezzullo
also spoke to Ms Rowling
on or about 11 June about the 31 March meeting.
3.49
It should be noted that in his interview with Mr
Pezzullo on 9 June 2004, Mr Barton
raised an additional matter that had not been disclosed to the Department of
Defence earlier. Mr Pezzullo
explained that, although Mr Barton
originally thought the death of Dr Muhammad
Munim al–Azmerli suspicious at the time, Mr
Barton now had 'reason to believe that the
causes of death, based on some media reporting... might in fact have involved
traumatic and violent action'. Mr Barton
explained further to the committee:
I do not have proof that the man was beaten to death but he did
die under suspicious circumstances and I believe that should be investigated. I
think that calls for an investigation. I am just saying it is suspicious. But
he was not on the list of those that were being investigated.[91]
3.50
A report based on the results of the fact–finding team
was presented to the Minister on Friday, 11 June, with supplementary
material delivered on the Sunday. Senator Hill explained that at the time there
were two different tasks:
One was a task set for Mr
Pezzullo by the secretary, which resulted in
a brief to me, which people have been referring to. That was basically an
information gathering and collating exercise. The second task, which was one
that was given to me by the Prime Minister, was to inform the Senate of a
number of different matters, as specified by the Prime Minister. I had to
interpret that and satisfy myself that the statement that I was going to
make—what I did was add to the questions that I had answered on 11 May—met
the Prime Minister’s requirements. So there is an element of overlap in that
regard.[92]
3.51
Mr Barton's
interview was not included in the report. Mr
Pezzullo stated: 'the secretary and the CDF
signed a covering ministerial advice on the 11th and we worked flat
chat to make sure that all the supplementary documents were appended...on the 14th
at the latest'.[93]
3.52
On 16 June, the Minister, in providing additional
information to questions asked in the Senate on 11 May, made clear that Defence
had thoroughly reviewed the information available to it and had confirmed the
following three key facts:
- Australia did not interrogate prisoners;
- Australia was not involved in guarding prisoners
at the Abu Ghraib prison or any other Iraq prison; and
- Australia was in no way involved in perpetrating
the acts of abuse against Iraqi prisoners we have seen in photos in the media.[94]
3.53
Mr Pezzullo
dictated or drafted out in longhand the record of the interview with Mr
Barton about 11 June and about the 12th
or the 13th circulated it to very senior officers. It was consistent with the answers
given in the survey return of 25 May except for the new matter in the form
of a 'note for file' dealing with the death in custody of Dr
Azmerli.[95]
3.54
The record of interview was provided to Mr
Barton on 17 June. According to Mr
Barton 'there were some things that I felt
were missing from that record, including the fact that I had reported the abuse
to the defence department in March'.
3.55
Mr Barton
rang Mr Pezzullo
on 17 June to voice his annoyance with Senator Hill's statement of the previous
day. He told the committee that although he does not get angry very often:
I rang him because I was annoyed with Senator Hill’s statement
that we had not been involved with interrogations. In fact—putting that aside,
as it is the lesser of the matters—I said to him that I was also not happy that
he had not referred to my reporting of prisoner abuse, which I had first
reported back in March that year and then given the full testimony on 9 June to
Mr Pezzullo; he had not referred to that prisoner abuse that I had referred to.[96]
3.56
Mr Barton
said that he talked with Mr Pezzullo
about the reference to Abu Ghraib
and that there was no reference to Camp
Cropper. He stated:
But I said the whole implication of that statement was that we
had nothing to do with the prisoners. The words could have been carefully
selected to refer only to Abu Ghraib,
and there was another place where it referred to ADF or something. I said, 'In
my view, that was misleading when I have provided you with this information'.
That is when he said, 'I will talk to the minister and let him know your views'.[97]
3.57
Mr Pezzullo
noted that Mr Barton
did not amend the term 'interview' which from his 25 May questionnaire is
repeated in his June statement of interview.[98]
3.58
Based on interviews with Mr
Barton, Defence, following advice from the Minister,
notified the US
Ambassador about Mr Barton's
concerns particularly the circumstances of Dr
Azmerli's death.[99] According to Mr
Smith, the trigger for writing the letter was
the concern over whether Mr Barton
had knowledge of Dr Azmerli's
death in custody and of prisoners who had facial injuries that might be
consistent with softening up and interrogation.[100]
3.59
According to Mr Smith,
an agent from one of the United States
armed forces investigatory units was sent to Australia
and he interviewed Mr Barton.[101] Mr
Bonighton, Deputy Secretary Intelligence and
Security, stated that the investigator came in August [19 August] to interview Mr
Barton.[102]
3.60
On 25
November 2004, Mr Bonighton
informed Mr Barton
'about the informal report that [had] been referred to by the investigator as to
his interview'. He explained:
I do not think he [Mr Barton]
was happy with the way that had gone, because once again we had the problem
where the investigator, certainly from my understanding, believed that he had
no direct knowledge of the events. I think Mr
Barton was hoping for something more
positive than that to come out of the particular interview'.[103]
3.61
On 6 July 2004,
Mr Pezzullo
sent a second letter about a separate concern to Mr
Schieffer's deputy, the Deputy Chief of Mission.
It related to the awareness on the part of an Australian officer of a possible
detention management practice that may have involved the administration of
detainees not in accordance with recognised standards.[104] The committee has no further
evidence on this matter.
Committee
view
3.62
Evidence shows that at least two Australian officers in
Iraq, Major
O'Kane and Lieutenant
Colonel Muggleton, had been aware of the
work of the ICRC with regard to the treatment of Iraqi detainees and had
mentioned the October working papers and the ICRC February report in situation
reports. The reports were received by a number of officers in Australia.[105] The committee is not aware of any
action being taken with regard to these reports except by Mr
Quinn. He sought information on the
involvement of members of the ISG and was reassured that Australians in the ISG
were 'not involved in interrogation or detention processes'.
3.63
The committee understands that Mr
Barton, on at least two occasions, raised
concerns with Australian officials about the detention of Iraqi prisoners—on 2 March 2004 with the Australian
Representative in Baghdad and other
Australian officials and again on his return to Australia
at the end of March 2004. According to the evidence, there appears that no
action was taken by Government officials present at the dinner on 2 March. In
relation to the second occasion, Defence acknowledged that there was no follow–up.
It noted that Mr Barton
'only mentioned the matter of Iraqi detainees and spoke about conditions and
mistreatment but not abuse'. Mr Barton
himself regrets that he did not 'push harder' about the matter.
3.64
It is clear, however, that once the abuse of Iraqi
captives became public in early May 2004, the Department of Defence and the
Minister took positive steps to establish the role that Australian personnel
had had in Iraq
with regard to the treatment of Iraqi detainees. Even then, the Department failed
to ascertain all the facts and, after intense questioning during an estimates
hearing, corrected the information contained in a joint statement issued by the
then CDF and the Secretary of the Department of Defence.
3.65
It was not until June
that a fact–finding team was formed in Defence to undertake a thorough search
of all information relevant to the matter of Iraqi detainees.
3.66
The committee has had the difficult task of piecing
together fragmentary and often incomplete evidence conveyed in most cases
through intermediaries lacking first hand knowledge of the incidents under
examination. In particular the committee notes that the authors of the
situation reports central to its inquiry were not made available to present
evidence. It has before it selected quotations from or paraphrasing of key
documents.
3.67
The committee accepts that the poor quality of evidence
may in part be due to the reluctance of the departments to disclose sensitive
information or protect the identity of officers. Even so, it believes that ineffective
record keeping, unclear and haphazard reporting processes, and poor
communication networks meant that both departments were unable to present a
coherent, detailed and accurate account of the matters of concern to the
committee. Defence had to undertake a major investigation before it could brief
the Minister on whether Australian personnel had knowledge of the mistreatment
of Iraqi detainees. It then had to undertake a further investigation because of
discrepancies emerging from the first survey.
3.68
The committee is concerned that communication and the
reporting processes within the Department of Defence are falling short of that
expected of a highly–skilled and professional organisation.
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