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The Mission Concept of Operations would be drafted by the Carana Peacekeeping Mission
Planning Team as part of the Integrated and Assessment Planning process. The draft
mission concept would be presented for approval to the USGs of DPKO and DFS after the
mandate has been issued by the Security Council. It uses the template from Reference A
below.
/LM2D-0790
Date M+2
UNITED NATIONS ASSISTANCE MISSION IN CARANA (UNAC)
CONCEPT OF OPERATIONS
References:
A. DPKO / DFS Policy on Planning and Review of Peacekeeping Missions
dated 01 January 2017.
B. UN Integrated Strategy on Carana (notional)
C. Kalari Peace Treaty (KPA) dated 19 May 2017.
D. DPKO Assessment and Planning Directive, Planning for a United Nations
Peacekeeping Operation in Carana, dated 21 May 2017.
E. Report of the UN Technical Assessment Mission to Carana, 31 May 2017.
F. UN Security Council Resolution 1544 (draft).
Summary: This Mission Concept defines the overall approach, priorities and
sequencing of the mandated tasks of the UN Assistance Mission in Carana
(UNAC) during its start-up period and beyond. The main focus of UNAC in the
initial period will be (a) the deployment and establishment of the Mission and (b)
supporting the implementation of Kalari Peace Agreement in accordance with
UNSCR 2300
A. CONTEXT
1. On 19 May 2017, after years of violent conflict in Carana a ceasefire
agreement, called the Kalari Peace Agreement (KPA), was signed between the
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country’s government and the main rebel forces – the Movement Patriotique de
Carana (MPC) in the West and the Combattants Indépendants de Sud Carana
(CISC) in the South West.
2. The KPA calls for a ceasefire, disengagement of forces, a mechanism to
verify and control the ceasefire, the formation of a Government of National
Reconciliation (GNR). It commits to elections within a year, the disarmament of
rebel forces and the integration of some of their soldiers into a restructured
national armed force. The GNR replaces the largely one party, one ethnicity,
repressive governance of President Ogavo whose actions contributed to the start
of the conflict. This KPA has an ambitious timeline for its implementation and
UNAC will not be operational in Carana until several months after the agreement.
The success of the KPA depends on continued political agreement between the
parties and the confidence to DDR. UNACs early military presence in the areas
were MPC face CDF and CISC face CDF will reduce the risk of confrontation,
disarmament is unlikely before this time and thus subsequent events will be
delayed. Elections within a year is a challenge as preconditions include sufficient
security throughout Carana, UNAC will advise GNR on this issue and be
prepared for postponement.
3. The KPA was brokered by the 8th Continent Regional Coalition (CRC)
who have provided the CRC Assistance Mission to Carana (CRCAC) to assist in
overseeing and verifying the ceasefire. CRC are likely to be supportive of UNAC,
can influence the GNR and contribute to regional security. The UN’s Regional
Representative will lead on coordination and cooperation with CRC informing
UNAC.
4. GNR had already invited a French force, Op INTRÉPIDE, to deploy to SW
Carana on the Rimosa border with a 6-month mandate to counter Islamist
activities. Op INTRÉPIDE will remain a separate Mission but UNAC will need to
coordinate closely and prepare for the security vacuum left by their departure.
5. The ceasefire has largely held although the forces have not significantly
withdrawn leaving the potential for a swift return to conflict. The GNR, while
mostly united, is struggling with its responsibilities, and there are security
vacuums in the country. There are areas controlled by Carana National Police,
Carana Defence Forces (CDF) and state security agencies; areas controlled by
MPC, areas loosely controlled but not administered by the CISC; and about a
third of the country ungoverned. Internal security functions such as immigration,
customs and port authority barely function. UNAC cannot address all these
issues in the initial deployment and priority must be given to maintaining political
consent for the adoption of the KPA and avoiding a return to conflict.
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6. Crime rates are high. Organized and transnational crime is evident in the
narcotics and diamond trade. The suburbs of the capital, GALASI, are under the
control of youth gangs. In Akkabar there is open conflict between miners and the
police. In addition to the military conflict there are longer term law and order
challenges, a continued security vacuum will enable organized criminal groups to
become stronger and harder to tackle in the long run. Efforts to support Carana
in tackling these issues need to be identified early.
7. In Leppko province there is radicalized and sectarian violence involving
splinter elements of the CISC but also uncontrolled armed groups (not party to
the KPA). The situation in MPC areas and CISC areas are substantially different
and need individual approaches. Leppko province is likely to be an enduring
security issue and will additionally involve engagement with Rimosa.
8. There is a significant humanitarian situation. There are an estimated
100,000 refugees and 100,000 IDPs. Most IDPs have fled to the coastal cities
and are now clustered in makeshift camps and shantytowns with inadequate
health and sanitation. Almost no medical infrastructure exists in the rural areas.
Some areas are not accessible to humanitarian agencies due to the security
situation and UNAC has a role in enabling this access. UNAC will need to work
closely with the Humanitarian sector to identify areas where we can assist. The
return of refugees and IDPs to their homes will need to be carefully managed,
and will be a factor in election planning.
9. The countries surrounding Carana are part of the CRC. Relations between
Carana and Samosa are traditionally good, however those with Katasi have been
strained as Carana has accused Katasi of supporting the rebel MPC. Relations
with Rimosa, which has its own civil war, are also strained with one of the rebel
groups, the Lassi Liberation Front, having loose links with the CISC. The UN
Regional representative will lead in this area but his office and UNAC will need a
coordinated information strategy. UNAC will be unable to focus on border issues
during the initial stages of the Mission but should support GNR in planning for
future engagement.
B. GUIDING PRINCIPLES
10. Consent of the Parties. UNAC has been invited by GNR and the parties
to the conflict. UNAC will work with GNR, at the strategic and operational level, to
deliver security and stability for Carana. At the tactical level there are likely to be
events where parties to the KPA try to restrain UNACs Freedom of Action, these
will need to be tackled carefully with direction from UNAC HQ.
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11. Impartiality. UNAC will be impartial, particularly in its actions in supporting
the ceasefire and separation of forces. This means being even handed but being
prepared to act robustly (politically and militarily) to any violations.
12. Non Use of Force except in Self-Defence and Defence of the
Mandate. The ROE and DUF will make it clear how the military and police
components can utilize force to achieve the mandated tasks.
13. Other Success Factors. Promotion of national and local ownership is
key to the UN’s success in Carana and is a guideline for both UNAC and the UN
Country Team. UNAC is supporting GNR both at the national and local level and
must listen to their leadership and support their intent.
C. OVERALL MISSION OBJECTIVES
14. UN Strategic Objective in Carana. The overall objective of the UN in
Carana is to contribute to the creation of an environment conducive to national
reconciliation, lasting peace and stability in a united CARANA, where human
rights are respected, the protection of all citizens is assured and in which IDPs
and refugees can return home in safety and in dignity; and to contribute to the
protection of civilians at risk.
15. UNAC Mission Objectives in Carana. UNACs plan to support the UN’s
Strategic Objective in Carana is through the achievement of the following
objective:
a. To support the implementation of the KPA:
KPA irreversible as MPC and CISC no longer military entities, successful
elections conducted and legitimate political processes recognized as the
way to improve the conditions of all people in Carana.
b. To Protect Civilians:
Civilians able to move freely within Carana. Illegal armed groups and
criminal gangs at a level that can be neutralized by Carana security forces.
c. To support Humanitarian and Human Rights Assistance:
Security situation sufficient that UNCT and IO/NGOs can access all parts
of Carana.
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d. To support Security Sector Reform (SSR):
CDF, CNP and other security institutions on a path to being ethnically
representative, effective and accountable security institutions, that operate
under civilian control within a framework of the rule of law and human
rights.
e. To support the wider implementation of the Peace Process.
Through dialogue and engagement and supporting the creation of a
protective environment UNAC has enabled national and local stake
holders to commit to the peace process
16. UNAC End State. A democratically elected government with restructured,
ethnically representative and accountable security forces able to protect all its
citizens and enable peacebuilding activities to continue
D. KEY ASSUMPTIONS AND RISKS
17. Assumptions.
a. The continued cooperation of the GNR and the continued consent of
the parties to UNAC’s deployment.
b. Sufficient access to Carana ports and airheads to enable force flow
and sustainment.
c. That Field Support elements can deploy and sustain to meet the
Mission CONOPS.
18. Risks and Mitigating Action.
a. The parties return to conflict before UNAC deploys and there is no
peace to keep. In this event UNAC will halt its deployment and await
DPKO direction.
b. The parties return to conflict while UNAC is deploying / deployed.
UNAC will withdraw from confrontation areas but seek to contain the
movement of MPC Eastwards and CISC Northwards in order to protect
civilians. UNAC will not directly support CDF.
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E. MISSION PHASES – CONCEPT OF OPERATIONS
19. The CONOPS covers the initial deployment in tasks in detail and the
remaining phases in outline. There are four phases:
Initial Deployment: (- M+90). Priority: Early influence on KPA.
Benchmarks include: Mission HQ and Field Offices established; UNAC
leading JCC and JLTs; Initial military presence in likely areas of
confrontation between the armed groups; Police presence in Galasi.
DDR and SSR outline plans agreed.
Expansion: (M+91-M+180). Priority: Greater security presence
throughout Carana.
Benchmarks include: Military Component at 80% of authorised strength
with reach throughout Carana; Disarmament has begun; armed groups
are cantoned, and 70% of CDF are in barracks; Humanitarian access to
60% of Carana. Election planning commenced.
Consolidation: (M+181 onwards until output achieved). Priority:
Conditions set for Elections
Benchmarks include: Sufficient security for elections; military aspects of
the KPA irreversible; MPC and CISC fully demobilized; FOM throughout
Carana. Humanitarian access throughout Carana.
Capacity Building and Drawdown (tbc). Priority: CNP able to provide
security throughout Carana. While capacity building will have begun
earlier, Mission resources are now available to make this activity a main
effort and implement the planning conducted earlier. Priority will be on
CNP capability as this will drive the rate of drawdown. Bench marks to
follow.
20. Phase 1 – Initial Deployment:
a. During the Initial Deployment Phase, UNAC will establish its HQ in
GALASI in order to strengthen dialogue with GNR, government
departments and national security bodies. It will assume the chair of the
Joint Ceasefire Commission (JCC) in accordance with the KPA and
support the GNR’s DDR programme.
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b. It will establish close coordination and sharing of information with
the UNCT and implement a Senior Leaders Forum.
c. The first UNAC Field Offices will be established in FARON and
MUKA to engage with local authorities including the leadership of MPC
and CISC.
d. After establishing a security presence in GALASI, the Military
Component is to support the GNR to ensure that the military aspects of
the KPA are implemented. It is to ensure Freedom of Movement of the
JLTs so that the JCC has the situational awareness to respond quickly to
any threats to the KPA. A return to civil war is the greatest threat to
civilians. The Military Component is to deter, pre-empt and if necessary
respond to breaches of the military aspects of the KPA, initially in areas
where MPC and CDF and CISC and CDF are most likely to clash (hot
spots) but elsewhere as resources allow. Thereafter the Military
Component will operate where it is best able to support the Mission
Objectives.
e. CRCAC observers, who meet UN Standards, will be re-designated
to UNAC as soon as UNAC’s capabilities permit.
f. Protection of Civilians is UNACs priority task and against which the
Mission will be judged. UNAC will conduct actions across Tier 1
(Dialogue and Engagement), Tier II (Physical Protection) and Tier III
(Establishing a Protective Environment) to mitigate the risks to civilians.
g. UNAC will build on the coordination with the UN Country Team and
the humanitarian agencies to continue to identify areas where UNAC
may support humanitarian access and human rights assistance access
including, when requested, and as a last resort, the provision of security
to the delivery of humanitarian aid.
h. UNAC will support the GNR’s SSR (identified in the KPA) in
particular the restructuring of the police force and the formation of a new
and restructured Carana military, both of these tasks will be in
cooperation with the interested organisations and states.
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i. Supporting the wider implementation of the Peace Process will
include assisting the GNR to establish national authority throughout the
country; assist in the preparation and conduct of national elections and
assist in developing a strategy to consolidate governmental institutions,
including a national legal framework and judicial and correctional
institutions.
F. PRIORITIES
21. In Phase 1 and onwards UNAC will focus on the following priorities:
a. Protection of UN personnel and facilities. This is the top priority but
for the police and military components it must be accepted that some risk
must be taken in order to defend our mandate and protect civilians. This
risk must be managed through thorough understanding the operational
environment, planning, preparation and coordination.
b. Protection of Civilians. At all times it is our responsibility to Protect
Civilians all UNAC activities should have this as a central purpose. In the
first instance the best way to protect civilians is to prevent a return to
conflict. It is accepted that we have limited means and in Phase 1 a
limited presence, this places an increased requirement for establishing
and maintaining situational awareness so that capabilities can be in the
right place at the right time to pre-empt threats to civilians.
c. Monitoring the Ceasfire and Disengagement. This is the key
activity in the KPA. Accurate and timely reporting of incidents to the JCC
will enable early resolution. The military component must be prepared to
deter, pre-empt and respond to incidents.
d. Dialogue and Engagement. At Mission level and in the field we
must constantly reach out to engage with government and other key
actors, including the leaders of MPC and CISC. This engagement needs
to be managed and coordinated so that the Mission speaks in one voice
and is seen to be robust, impartial and here to help.
e. Support to Humanitarians and Human Rights Assistance. UNAC
will reach out humanitarian and Human Rights organisations, primarily
through the DSRSG (HC) but also at Field Office level to identify how our
capabilities can assist their operations. In Phase 1 we will be limited by
our capacity and the need to focus on the confrontation areas but our
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wider deployment in Phase 2 should be influenced by the humanitarian
and Human Rights priorities for access.
f.
G. CORE OUTPUTS
22. The core outputs necessary to the achievement of the Objectives in
Section D are at Annex E.
H. STRATEGIC GUIDANCE TO COMPONENTS
23. General. Cross pillar planning, thematic coordination and coordination
with Carana authorities and the UN Country Team apply to all components so
that UNAC delivers its mandate effectively. COS UNAC will detail the HQ
coordination mechanisms.
24. Civilian Component. The Component will divide between
DSRSG(Political) and DSRSG (HC/RC) to be more effective in delivering the
mandate. The priority in Phase 1 will be to identify and engage with government
and local leaders to establish situational awareness, explain UNAC’s purpose
and build a level of trust which is essential for successful interactions.
25. Military Component. The initial effort is to be in ‘policing’ the ceasefire
and disengagement. If this is effective it will create the confidence in the UN
presence that will encourage the armed groups that they will be protected from
the CDF when they disarm. The likely areas of confrontation will be the main
effort until these groups have disarmed, thereafter resources can be tasked to
other priorities in Carana.
26. Police Component. The initial effort is to be in Galsi to support the CNP
in combatting criminal activity in the capital. Thereafter police capabilities should
be provided for Muka and Faron to support existing local police capacities.
HOPC is to identify how best the Police Component may support the planning
and implementation of Police Reform and capacity building noting that this may
require additional specialized capabilities on Phase 3 and 4.
I. RESOURCE IMPLICATIONS
27. The Mission Structure, Military Resources, Police Resources and Support
Concept are at Annexes A-D.
ANNEXES
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A. UNAC HQ Structure
B. Military Resources
C. Police Resources
D. Support Concept (not included)
E. Core Outputs for Each Objective
ANNEX A TO
UNAC MISSION CONOPS
DATED ____
UNAC HQ STRUCTURE
In addition: Field Offices at Galasi, Muka and Faron
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ANNEX B TO
UNAC MISSION CONOPS
DATED ____
MILITARY RESOURCES
UNAC will consist of up to 9,100 United Nations military personnel, including up
to 200 military observers and 265 staff officers
Ser Type Quantity Remarks
1 Force Headquarters 1 130 pers incl Support
2 Sector HQ 3 40 pers
Support Troops
3 Signals Company 1 Includes comms for FHQ
and 3 Sector HQs
4 Medium Transport Company 2
5 Aviation Squadron 1 Tps
6 Aviation Tactical Squadron 1 2 Recce and 6 Attack
Helicopters
7 Logistics Support Company 2
8 Engineer Company 2
9 Role 2 Hospital 2
Maneuver Units
10 Motorised Infantry Battalions 8 One as Force Reserve
11 Mechanised Infantry 1
Battalions
12 Mechanised Infantry 2
Company
UNMOs
Military Observers 200 Includes CMO and DCMO
in FHQ
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ANNEX C TO
UNAC MISSION CONOPS
DATED_____
POLICE RESOURCES
Total Strength: 1250 police personnel plus 200 Corrections Officers
Ser Type Quantity Remarks
1 Police Component HQ 1
2 Formed Police Units 5
3 Individual Police Officers 510
4 Cover for Specialist Teams x
5 Corrections Officers 200
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ANNEX E TO
UNAC MISSION CONOPS
DATED_____
MISSION OBJECTIVES AND OUTPUTS (extract)
To support the implementation of the KPA:
KPA irreversible as MPC and CISC no longer military entities, successful elections conducted and legitimate political
processes recognized as the way to improve the conditions of all people in Carana
OUTPUTS
Phase 1 Phase 2 Phase 3 Phase 4
Initial Deployment Expansion Consolidation Capacity Building and
Withdrawal
GNR implement DDR Plan agreed by GNR 50% Disarmed 100% Disarmed 100% Disarmed
and the parties 20% Demobilised 80% Demobilised 100% Demobilised
10% Reintegrated 40% Reintegrated 80% Reintegrated
MPC and CISC MPC and CISC
volunteers for CDF volunteers mustered
identified as CDF
< 5 major Ceasefire 50% of MPC 100% of MPC 100 % Demobilised
MPC complying with violations disarmed disarmed 0% cantoned
KPA MPC agree DDR plan >20% demobilized >80% Demobilised /
15% Reintegrated moved to CDF
<20% cantoned
CISC complying with < 5 major Ceasefire 50% of CISC 100% of MPC 100 % Demobilised
KPA violations disarmed disarmed 0% cantoned
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> 20% demobilized >80% Demobilised /
7% Reintegrated moved to CDF
< 20% cantoned
Free and fair GNR commit to free GNR have election Election conducted in
Elections speech and creation plan (including line with international
of political parties logistics) standards
To Protect Civilians:
Civilians able to move freely within Carana. Illegal armed groups and criminal gangs at a level that can be neutralized
by Carana security forces.
OUTPUTS
Phase 1 Phase 2 Phase 3 Phase 4
Initial Deployment Expansion Consolidation Capacity Building and
Withdrawal
Civilian FOM within % area by Province % area by Province 100% 100%
Carana
Reduction in illegal Number of armed Number of armed Number of armed Within national
armed groups groups in Carana groups in Carana groups in Carana capacities to
neutralise
Reduction in Criminal % reduction in % reduction in % reduction in Within national
Gangs incidents in Galasi incidents in Galasi incidents in Galasi capacities to
neutralise
To support Humanitarian and Human Rights Assistance:
Security situation sufficient that UNCT and IO/NGOs can access all parts of Carana.
OUTPUTS
Phase 1 Phase 2 Phase 3 Phase 4
Initial Deployment Expansion Consolidation Capacity Building and
Withdrawal
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Humanitarian Access Fellari, Guthar,Hana + 60% Koloni, All provinces All provinces
and Karin provinces 80%Mahbek and 50%
of Leppko provinces
To support Security Sector Reform (SSR):
CDF, CNP and other security institutions on a path to being ethnically representative, effective and accountable security
institutions, that operate under civilian control within a framework of the rule of law and human rights.
OUTPUTS
Phase 1 Phase 2 Phase 3 Phase 4
Initial Deployment Expansion Consolidation Capacity Building and
Withdrawal
GNR implement SSR Plans agreed by International donors
parties and funded secured
Security budget for
FY agreed
Military implement CDF new structure Surplus members of MPC and CISC
SSR and estate agreed CDF identified and volunteers mustered
redundancy package as CDF
Quotas allocated for agreed
MPC and CISC CDF surplus departed
Plan for implementing
CDF new structure CDF in new structure
etc agreed and Training started in
funded new structures
Police implement CNP new structure Plan for implementing CNP in 100% of
SSR and estate agreed CNP new structure Carana
etc agreed and
funded CNP in new structure
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CNP in 40% of
Carana
Prison and Correction Review Prisons and Implement
Service SSR Corrections service recommendations of
with GNR review
To support the wider implementation of the Peace Process:
Through dialogue and engagement and supporting the creation of a protective environment UNAC has enabled national
and local stake holders to commit to the peace process
OUTPUTS
Phase 1 Phase 2 Phase 3 Phase 4
Initial Deployment Expansion Consolidation Capacity Building and
Withdrawal
To follow
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